t)R  CHICAGO 


A     BILL     f-OK     TUL     RK.OH   .     N!      ^ 
MUNICIPAL  GOVERNMENT  ,  \M  i  H 
EXPLANATORY  STATFMF.NT 


UnD  presented  for  public  CONSrDERATIO^v 

BV    THE 

Jo  BUREAU  O'-'  PUBLIC  FFFICllNCV 


OCTOBER,    1917 


PRIOR  PUBLICATIONS. 


'^PreparlnK   and    AdnilnlMterlngr   the   Dudset   ol   Cook   Codniy,  tlllnoU. 
r,  l»ll. 

>^»t>'oMed  KurrkaMC  of  Totlne;  MacMoM  by  the  Board  of  Election  Commluloaeni 
Mt   (be   City   of   Cbirauo.     HajPi   lUll*      (Unt   of  Print.) 

itrrei  I'm-  i  .  i  '  >il«l  in  Jhe  City  of  CUJcacoi  Aa  inqntry  Into  PovIiib  Materials, 
Sleibix!-    <  .  (f    )u>iiii(M.      June,    1011.      <Out    of   Prtat.) 

.  iroOHiM  «>f  \V  liter  IMpeK  In  the  City  of  Chicago.     Jnly,  11)11.      (Out  of  Prlat.) 

^A<lii<ii>'»ira«i<>u    of    (he   Ollloe   of   Ktcorder   of    Co«>k    County,    Illluola.      September, 

l)»i  1. 

^A   I'U-K   r.T   I'libllolty  iu  the  Office  of  County  Treasurer.     October,  1911.     (Ont  of 

rrl...(.( 

ItepalriuK  Aupbolt  Pavementi  Work  Done  for  the  City  of  Chicago  Under  Con- 
Irut't   of   11*11.      October,   1011.      (Out    of  Print.) 

The  MunlcliMil  Court  Actvi  Tvro  Related  Propoaltfons  Upon  WUch  the  Totcra 
of  t  uit'iiKo  u  ill  tic  AMked  to  Pam»  judKnieitt  at  the  JBUectlon  «if  November  7— 
\o(e    \*>.     t)oiober    »l,    11)11.      (Out   of    Print.) 

0.     Tlif   \>ttier  Worki*  Myntem  of  the  City  ot  Chicago.     By  Dabney  H.  Hnnry.     De- 
ceuiber.   IJUI.     (Out   of  Print.) 

lO.     ilureitu  of  sirertat   Civil  Service' Comnilaaloni  and   Special  Aaaeaament   Acconnt- 
luK   ^>Mteal  of   the   City  of  Chicago.     l>eeeniber,   1011.     (Out  of  Print.) 

It.     A  il  111  in  hit  ra  I  ion    of   the   Office  of   Coroner  of   Cook   County*  lUlnola.     December, 
lUtl. 

AituitiilMiruiluu  of  the  Ollioe  of  Sheriff  of  Cook  County,  Illlnola,     December,  IWll. 

Pia.     A  il  III  I  OIK  I  r»  lion  of  the  Office  of  Clerk  of  the  Circuit  Court   and  of  the   Office  of 
CIrrti  of  the  »uperlor  Court  of  Couk  County,  llUnola.     December,  lUll. 

The  Jiidu*-"  uud   the  County  Fee  Offices.     December  19,  1911.     <Ont  of  Print.) 

<;eueral  >unin>nry  and  Concloalona  of  Report  on  the  Park  Govcmmeuta  of 
Cbleauo.      December,   Ittll. 

UC     Tbc    I'lirk    (i'wverumenta   of   Chicagoi      An   inquiry  Into   Their  Orsanlxatlon   and 
Meihuds   of   Ad  ml  ab*t  ration.     December,   Itlll. 

Il7.     OOlcen  of  «he  Clerki*  of  the  Circuit  and  Superior  Court«i    A  Supplemental  Inquiry 
^  luiw  Their  OrKanuatlon  and  Method*  of  Adminlatration.     November,  1B1:£. 

IS.     A4miniHirailon  of  the  Office  of  the  Clerk  of  the  County  Court  of  Cook  Conaty, 
lillnMlM.     November,   1912. 

^0.     Office    of    SherliT    of   Cook    County,    IlUnoias      A    Supplemental    Inquiry    Into    Its 
tiritnuiKatlon  and  Methuda  of  Administration.     November,  1912. 

20.     Gro^Tlnv  Coat  of   Klectiuaa  In  Chicago  and  Cook  County.     December  30^  WZ, 

:tl.     The    Vn'tilng    Marhine   Contrnrt.     A     Protest     Agalaat     Its     Recognition     In    Amt 
Purm  by  the  City  ;Coiincil  of  the  City  of  Chicago.     Jannary   l.  1813. 

22.  The  OllU'e  of  (he  County  TreoMurer  of  Cook  County,  Illlaota.     Aa  Inquiry  Into  the 

AiioiinNiratlon   of    It*    l<*inaoce«    with    Special    Reference  to   the   (iueatlon   of 
luierCMi  on  Public  Funda.     November,  1913. 

23.  The   Mneieea   Local  Goveramenta  la  Chicago.     December,  1913. 

24.  The   (loud   tuMuen  to   Ite  Voted  Vpon  April  7,  1014.     March  80,  1814. 

25.  A   Src«iud  Plea  for  Publicity  In  the  Office  of  County  Treasurer.     July  0,  1814. 

:'(].     The   Nineteen    Local   Ooveruments   la    Chicago.      (Second    EUlltlon.)    March,    lOlB. 

-V,     UnlflcHtlo-i   f'f   r  o'-nl   Corcrnmcnts  In  Chlcasro.     January,  1017. 


THE  CITY  MANAGER  PLAN 
FOR  CHICAGO 


DRAFT     OF     A     BILL     FOR     THE     REORGANIZATION 
OF  THE  MUNICIPAL  GOVERNMENT,  WITH 
EXPLANATORY   STATEMENT 


PREPARED  AND  PRESENTED  FOR  PUBLIC  CONSIDERATION 

BY  THE 

CHICAGO  BUREAU  OF  PUBLIC  EFFICIENCY 
315  PLYMOUTH  COURT 


CHICAGO    BUREAU 

OF 

PUBLIC  EFFICIENCY 


TRUSTEES 


Julius  Rosenwald,  Chairman 
Alfred  L.  Baker,  Treasurer 

Onward  Bates  Victor  Eltinq 

George  G.  Tunell  Allen  B.  Pond 

Walter  L.  Fisher  Frank  I.  Moulton 


Harris  S.  Keeler,  Director 


TABLE  OF  CONTENTS. 


Page. 

INTRODUCTION    4 

EXPLANATORY   STATEMENT    5 

The  Need  for  Reorganization   6 

Bill  Embodying  the  Immediate  Program 7 

Main  Points  of  the  Proposed  Bill   8 

The  Mayor  to  be  Elected  by  the  Council 9 

Savings  from  Fewer  Elections   9 

Size   of   the   Council    10 

No  Fixed  Tenure  for  Mayor  and  Department  Heads 10 

Non-Partisan  Elections  and  the  Recall 11 

Council  Vote  Required  to  Pass  Ordinances 11 

Redistricting  of   Wards  a   Necessity    13 

When  the  Proposed  Changes  Would  Become  Effective 14 

DRAFT  OF  A  BILL  for  the  Reorganization  of  the  Municipal  Gov- 
ernment of  the  City  of  Chicago  by  Providing,  Among  Other 
Things,  for  the  Election  of  the  Mayor  by  the  City  Council,  and 
for  the  Non-Partisan  Election  of  Aldermen;  by  Fixing  the  Num- 
ber of  Aldermen  at  SS,  One  from  Each  Ward;  and  by  Extend- 
ing the  Term  of  Aldermen  to  Four  Years,  Subject  to  Popular 
Recall    17 

APPENDIX  A— 

Reprint  of  Extracts  from  the  Report  of  the  Bureau  on  Unifica- 
tion of  Local  Governments  in  Chicago,  Published  in  .January, 
1917,  Setting  Forth  Reasons  for  Favoring  the  City  Man- 
ager Plan  of  Government  for  Chicago 49 

APPENDIX  B— 

Simple  Government.  Reprint  of  an  Editorial  from  the  Econo- 
mist, Chicago's  Financial  Publication   57 

APPENDIX  C— 

Tables  Giving  Population  and  Registration  of  Voters  by  Wards, 
Showing  the  Need  for  Redistricting  of  the  City  into  New 
Wards    59 


INTRODUCTION. 


In  presenting  to  the  public  the  draft  of  a  bill  for  the 
reorganization  of  the  municipal  government  of  Chicago 
along  the  lines  of  the  city  manager  plan,  the  Chicago 
Bureau  of  Public  Efficiency  believes  that  it  is  directing 
attention  to  one  of  the  greatest  needs  of  the  community. 
The  purpose  in  embodying  the  plan  in  the  form  of  a 
concrete  bill  is  to  facilitate  action  in  getting  something 
done  to  improve  conditions.  With  that  end  in  view,  the 
Bureau  invites  consideration  of  the  measure  and  sugges- 
tions for  its  improvement  so  that  there  may  be  if  possible 
substantial  unanimity  upon  the  subject  when  the  time 
comes  for  its  presentation  to  the  Legislature. 

Organized  groups  of  various  kinds,  public  officials,  and 
individual  citizens  are  invited  to  send  to  the  Bureau  in 
writing  their  views  upon  the  bill  herewith  presented  and 
the  subject  matter  with  which  it  deals.  tFpon  request, 
speakers  for  meetings  will  be  supplied  by  the  Bureau  to 
explain  the  bill  and  the  two-fold  program  of  govern- 
mental reorganization  for  Chicago  to  which  the  Bureau 
is  committed.  That  program  is :  (1)  ultimate — the  uni- 
fication into  one  municipal  entity  of  all  the  local  gov- 
erning agencies  within  metropolitan  Chicago,  under  a 
plan  of  simple,  centralized,  responsible  government;  (2) 
immediate — the  application  to  Chicago  as  soon  as  possi- 
ble of  a  modified  form  of  the  city  manager  plan  of  gov- 
ernment, with  non-partisan  elections. 

In  the  preparation  of  the  bill  and  the  accompanying 
explanatory  material,  the  Bureau,  in  addition  to  its  reg- 
ular staff,  has  had  the  services  of  lawyers  especially  fa- 
miliar with  bill  drafting,  and  the  assistance  of  Mr.  George 
C.  Sikes,  former  secretary  of  the  Bureau.  In  the  matter 
of  advice  upon  legal  questions  involved,  Mr.  Henry  Scho- 
field  of  the  Chicago  bar  has  been  particularly  helpful. 

Chicago  Bureau  of  Public  Efficiency. 
Harris  S.  Keeler,  Director. 
October,  1917. 


THE  CITY  MANAGER  PLAN  FOR  CHICAGO. 


EXPLANATORY  STATEMENT. 


In  its  report  on  Unification  of  Local  Governments  in 
Chicago,  published  in  January  of  this  year,  the  Chicago 
Bureau  of  Public  Efficiency  urged  the  merger  into  one 
municipal  entity  of  all  the  local  governments  ^\^thin  the 
area  comprising  what  might  be  termed  metropolitan  Chi- 
cago. That  area  is  substantially  the  territory  within  the 
limits  of  the  Sanitary  District.  A  plan  of  government 
was  also  outlined  in  that  report,  which  is  an  adaptation 
to  Chicago  of  the  city  manager  plan.  Complete  unifica- 
tion cannot  be  effected,  of  course,  without  extensive  mod- 
ifications of  the  Constitution  of  the  State.  The  General 
Assembly  of  Illinois,  at  its  last  session,  voted  to  submit 
to  the  people  the  question  of  calling  a  convention  to 
revise  the  Constitution.  That  proposition  will  be  passed 
upon  by  the  voters  at  the  election  of  November,  1918. 

While  awaiting  the  constitutional  changes  necessary 
to  complete  unification,  it  is  possible  by  legislative  action, 
with  the  approval  of  the  people  of  Chicago  on  a  referen- 
dum vote,  to  apply  to  the  present  city  the  plan  of  gov- 
ernment outlined  and  recommended  by  the  Bureau.  In 
the  report  published  in  January  last,  the  Bureau  recom- 
mended that  the  Legislature  of  Illinois  should  give  Chi- 
cago at  once  a  modified  form  of  the  city  manager  plan  of 
government.  It  was  urged  that  the  change  should  be 
made  to  take  effect,  if  possible,  with  the  municipal  elec- 
tion of  1919,  when  the  term  of  the  present  mayor  expires. 


6  Chicago  Bureau  of  Public  Efficiency 

After  the  publication  of  its  report  in  January,  the 
Bureau  undertook  the  drafting  of  a  bill  embodying  in 
concrete  form  its  plan  for  reorganization  of  the  city 
government  of  Chicago,  without  the  unification  features 
that  must  await  constitutional  authorization.  By  the 
time  the  draft  of  the  bill  was  completed,  the  session  of 
the  Legislature  was  well  advanced,  and  the  outlook  for 
enabling  legislation  for  Chicago  was  so  discouraging  that 
it  seemed  inexpedient  to  present  the  measure. 

THE  NEED  FOR  REORGANIZATION. 

Continuous  developments  in  the  municipal  situation 
ever  emphasize  anew  the  need  for  radical  reorganization 
of  the  government  of  Chicago.  To  be  sure,  the  spirit  of 
pessimism  is  in  the  local  atmosphere,  and  in  many  quar- 
ters the  idea  prevails  that  the  prospects  of  accomplish- 
ment do  not  justify  the  putting  forth  of  the  effort  neces- 
sary to  bring  about  needed  changes  in  government. 

The  Chicago  Bureau  of  Public  Efficiency  has  faith  that 
the  spirit  of  aggressive  progress  that  made  Chicago  what 
it  is  still  lives ;  and  the  Bureau  believes  that  that  spirit 
can  be  enlisted  in  a  movement  for  the  reorganization  of 
municipal  government  on  lines  of  efficiency  and  economy 
calculated  to  promote  the  public  welfare.  The  Bureau 
appeals  to  citizens,  civic  organizations,  the  press,  and 
public  officials  to  join  earnestly  in  the  movement  for 
governmental  reorganization  in  this  community.  The 
program  has  two  main  aspects,  as  follows:  (1)  ultimate 
— the  unification  into  one  municipal  entity  of  all  the  local 
governing  agencies  within  metropolitan  Chicago,  under 
a  plan  of  simple,  centralized,  responsible  government; 
(2)  immediate — the  application  to  Chicago  as  soon  as 
possible  of  a  modified  form  of  the  city  manager  plan  of 
government,  with  non-partisan  elections,  under  which  re- 


City  Manager  Plan  for  Chicago  7 

sponsibility  would  be  centralized,  the  ballot  shortened, 
political  partisanship  eliminated  as  far  as  possible,  and 
the  incentive  to  efficiency  on  the  part  of  city  officials  in- 
creased. 

BILL  EMBODYING  THE  IMMEDIATE  PROGRAM. 

The  ultimate  program  was  outlined  in  the  report  of  the 
Bureau  on  Unification  of  Local  Governments  in  Chicago, 
copies  of  which  may  be  had  free  on  application  by  letter 
or  in  person  at  the  office  of  the  Bureau.  The  immediate 
program  was  also  indicated  briefly  in  that  report.  It  is 
embodied  more  fully  in  tlie  draft  of  a  bill  printed  here- 
with, described  as  a  ''Draft  of  a  Bill  for  the  Keorganiza- 
tion  of  the  Municipal  Government  of  the  City  of  Chi- 
cago by  Providing,  Among  Other  Things,  for  the  Election 
of  Mayor  by  the  Council,  and  for  the  Non-Part isan  Elec- 
tion of  Aldermen ;  by  fixing  the  Number  of  Aldermen  at 
35,  One  from  Each  Ward;  and  by  Extending  the  Term 
of  Aldermen  to  Four  Years,  Subject  to  Popular  Recall." 

Tlie  preparation  of  this  bill  has  involved  much  work 
and  study.  The  Bureau  presents  it  to  the  public  for  con- 
sideration and  suggestions  in  the  hope  that  the  draft  as 
it  stands,  or  as  it  may  be  modified  after  discussion,  may 
have  the  support  of  the  community,  be  enacted  into  law, 
and  be  adopted  on  a  referendum  vote  as  part  of  the  city 
charter  of  Chicago.  If  the  jjlan  proposed  is  to  become 
effective  by  April,  1919,  when  the  term  of  the  present 
mayor  expires,  it  will  be  necessary  to  have  action  upon 
it  at  a  special  session  of  the  Legislature.  While  no 
special  session  has  been  announced,  and  while  it  is  un- 
certain whether  or  not  one  will  be  held,  the  movement 
for  legislation  to  reorganize  the  city  government  of 
Chicago  should  be  under  such  headway  that  Governor 
Lowden  can  reasonably  be  urged  to  include  the  subject 


8  Chicago  Bureau  of  Public  Efficiency 

in  the  call,  in  case  he  decides  to  convene  the  General 
Assembly  in  special  session. 

The  Bureau  is  in  full  agreement  with  those  who  hold 
that  this  is  no  time  for  mere  experiments  in  social  and 
governmental  reconstruction.  The  time  does  call,  how- 
ever, for  such  businesslike  reorganization  of  govern- 
mental systems  as  is  necessary  to  efiSciency  and  economy. 
National  governments  engaged  in  war  operations  have 
been  obliged  to  make  changes  in  the  direction  of  sim- 
plification and  centralization  of  responsibility  in  order 
that  they  may  function  more  effectively.  City  govern- 
ments should  follow  the  same  example,  instead  of  con- 
tinuing to  waste  taxpayers'  money  lavishly  through  cum- 
bersome and  ineffective  governmental  methods  that  need 
overhauling.  The  Bureau  contends  that  the  changes  sug- 
gested in  the  bill  herewith  presented  are  supported  by 
experience  and  by  the  judgment  of  the  best  authorities 
on  practical  questions  of  government. 

MAIN  POINTS  OF  THE  PROPOSED  BILU 

The  main  purpose  of  the  bill  is  to  apply  to  Chicago  a 
modified  form  of  the  city  manager  plan  of  government, 
with  non-partisan  methods  of  electing  aldermen.  The 
bill  also  reduces  the  number  of  aldermen  from  70  to  35, 
one  alderman  from  each  ward,  and  extends  the  term  of 
aldermen  to  four  years,  subject  to  popular  recall.  Other 
features  of  the  bill  are  incidental  to  these  objects. 

In  form,  the  bill  is  an  amendment  of  Article  XII  of  the 
Cities  and  Villages  Act.  Article  XII  of  that  Act  is  the 
portion  of  the  city  charter  based  upon  the  so-called  Chi- 
cago charter  amendment  of  the  Illinois  Constitution, 
adopted  in  1904.  Some  of  the  provisions  of  the  bill  that 
may  seem  superfluous  to  the  layman  are  legally  neces- 


City  Manager  Plan  for  Chicago  9 

saiy  to  negative  the  application  to  Chicago  of  portions 
of  the  Cities  and  Villages  Act  which  are  inconsistent  with 
this  proposed  special  Act  for  Chicago  but  which  would 
apply  unless  otherwise  explicitly  negatived.  Not  all  the 
provisions  of  the  bill  are  new.  In  some  instances,  it  has 
been  necessary  to  restate  either  in  form  or  substance 
matters  which  are  already  in  the  statutes. 

The  Mayor  to  Be  Elected  by  the  Council. 

The  term  city  manager  is  not  used  in  the  bill.  The 
title  of  mayor  is  retained  for  the  executive  head  of  the 
city  government.  But  the  bill  aims  to  give  to  Chicago 
the  essence  of  the  city  manager  plan  of  government, 
which  is  the  vesting  in  an  executive  chosen  by  the  council, 
and  subject  to  its  continuous  control,  of  responsibility 
for  administration.  Extracts  from  the  report  of  the 
Bureau  issued  in  January  last,  reprinted  in  this  docu- 
ment, explain  why  the  city  manager  plan  is  favored  for 
Chicago. 

Savings  From  Fewer  Elections, 

The  reason  for  electing  all  the  aldermen  at  one  time, 
for  a  four-year  term,  subject  to  popular  recall,  is  econ- 
omy. This  plan,  when  put  into  operation,  would  give 
Chicago  a  regular  city  election  only  once  in  four  years, 
whereas  now  there  is  a  city  election  every  year.  On  the 
basis  of  laws  then  in  effect,  the  Bureau,  at  the  time  of  the 
issuance  of  its  report  on  Unification  of  Local  Govern- 
ments in  Chicago,  estimated  that  the  money  savings  by 
reducing  the  number  of  city  elections  as  proposed  would 
amount  to  approximately  $700,000  a  year.  Since  that 
time,  however,  the  Legislature  has  passed  a  law  greatly 
reducing  the  cost  of  registrations  of  voters  prior  to  pri- 


10  Chicago  Bureau  of  Public  Efficiency 

maries  and  elections;  also  a  measure  designed  to  save 
money  by  providing  for  larger  election  precincts  in  the 
future.  As  compared  with  costs  under  the  present  laws, 
the  saving  to  taxpayers  from  the  elimination  of  three 
city  elections  in  every  four-year  period,  for  which  the 
bill  makes  provision,  is  calculated  by  the  Bureau  at 
$1,740,000,  or  an  average  annual  saving  of  $435,000.  In 
these  calculations,  no  definite  allowance  has  been  made 
for  the  cost  of  special  recall  elections,  the  number  of 
which  cannot  be  foretold.  However,  the  figures  do  allow 
for  the  cost  of  supplementary  elections  in  all  wards  fol- 
lowing the  regular  quadrennial  city  elections.  In  many 
wards  there  will  be  no  supplementary  election.  It  is  as- 
sumed roughly  that  the  cost  of  special  recall  elections 
will  not  be  larger  than  the  savings  from  the  elimination 
of  supplementary  elections. 

Size  of  the  City  Council. 

The  question  of  the  size  of  the  city  council  is  one  on 
which  there  are  sharp  differences  of  opinion.  There 
seems  to  be  quite  general  sentiment  in  favor  of  a  smaller 
council  than  70  members.  Some,  however,  want  a  body 
of  50  members,  while  others  think  that  the  number  of 
aldermen  should  be  21,  or  even  as  low  as  15.  The  Bureau 
suggests  a  council  of  35  aldermen,  one  from  each  ward. 

No  Fixed  Tenure  for  Mayor  and  Department  Heads. 

The  mayor,  to  be  chosen  by  the  council,  would  serve 
without  fixed  tenure,  being  subject  to  removal  at  any 
time.  He  would  name  all  heads  of  departments  except 
the  comptroller  and  the  city  clerk,  who  would  be  chosen 
by  the  city  council.  The  heads  of  departments,  like  the 
mayor  himself,  would  serve  without  fixed  tenure,  and 


City  Manager  Plan  for  Chicago  11 

need  not  be  residents  of  the  city  at  the  time  of  their  ap- 
pointment. Members  of  such  bodies  as  the  civil  service 
commission  and  the  board  of  education  would  continue 
to  have  the  duties  and  tenure  now  fixed  by  statute. 

Non-Partisan  ElectionB  and  the  Recall. 

The  provisions  for  the  non-partisan  election  of  alder- 
men take  up  considerable  space  in  the  bill,  but  the  prop- 
osition is  fairly  simple  in  essence.  It  is  that  all  nomina- 
tions for  alderman  shall  be  made  by  petition  only.  A 
petition  must  be  signed  by  not  less  than  one  per  cent 
nor  more  than  three  per  cent  of  the  voters  of  a  ward. 
The  candidate  receiving  a  majority  of  the  votes  is  elected. 
There  are  no  primaries.  Instead,  provision  is  made  for 
a  supplementary  election,  in  case  no  candidate  has  a  ma- 
jority, to  be  held  three  weeks  after  the  first  election.  At 
the  supplementary  election  the  choice  is  confined  to  the 
two  high  candidates  at  the  first  election  and  the  one  re- 
ceiving the  most  votes  at  the  supplementary  election  is 
elected. 

An  alderman  may  be  recalled  after  he  has  been  in 
office  a  year.  The  recall  proceedings  are  instituted  by 
the  filing  of  a  recall  petition  signed  by  25  per  cent  of 
the  voters  of  a  ward.  There  will  be  no  occasion  for  a 
city-wide  recall,  as  under  the  proposed  plan  aldermen 
chosen  by  wards  will  be  the  only  elective  city  officials — 
disregarding  municipal  court  judges  and  attaches,  who 
do  not  come  within  the  scope  of  this  bill. 

Council  Vote  Required  to  Pass  Ordinances. 

The  attempt  has  been  made  in  framing  this  measure  to 
avoid  changes  in  substantive  law  unless  imperatively 
necessary.  It  does  seem  necessary,  however,  to  touch  the 
subject  of  franchise  grants.    The  purpose  of  the  bill  is 


12  Chicago  Bureau  of  Public  Efficiency 

to  place  upon  the  majority  of  the  city  council  and  their 
agent,  the  mayor,  responsibility  for  the  management  of 
city  affairs.  This  means  that  a  majority  of  the  alder- 
men elected  should  be  able  to  make  ordinances  effective. 
The  bill  so  provides.  The  veto  power  is  retained  in  the 
mayor  as  a  means  of  placing  upon  him  the  responsibility 
for  directing  the  attention  of  the  council  to  faulty  ordi- 
nances. But  it  is  stipulated  that  a  vetoed  ordinance  may 
be  repassed  by  the  vote  necessary  to  its  passage  in  first 
instance.  Although  the  majority  of  the  aldermen  should 
bear  the  responsibility  for  legislation  and  for  adminis- 
tration while  they  are  in  ofiSce  and  should  have  authority 
to  act  commensurate  with  the  responsibility,  there  are 
limits  to  the  power  they  should  have  to  bind  the  City  be- 
yond their  term  of  ofiSce  by  bond  issues  and  franchise 
grants.  Provisions  of  existing  law  that  would  continue 
to  apply  to  Chicago  after  the  adoption  of  the  proposed 
Act  require  a  referendum  on  all  bond  issues  of  the  City. 
Therefore,  that  matter  calls  for  no  treatment  in  the  bill. 
As  to  franchise  grants,  however,  the  situation  is  differ- 
ent. It  manifestly  would  be  unwise  to  allow  a  majority 
of  the  aldermen  to  pass  ordinances  granting  franchises 
for  long  periods  that  future  councils  could  not  revoke. 
Three  methods  of  dealing  with  the  situation  have  been 
suggested.  One  is  to  require  a  two-thirds  vote  of  the 
council  for  the  passage  of  franchise  ordinances  with  a 
longer  life  than  five  years.  This  is  the  number  of  alder- 
men required  at  the  present  time  to  pass  a  franchise  over 
the  mayor's  veto.  The  objection  to  it  as  the  sole  pro- 
vision on  the  subject  is  that  it  would  enable  a  minority 
of  the  council — perhaps  actuated  by  unworthy  motives — 
to  block  a  proper  project  supported  by  a  majority  of  the 
public-spirited  members  of  the  council.  It  has  the  merit 
of  making  possible  quick  action  on  matters  to  which  there 


City  Manager  Plan  for  Chicago  13 

is  little  opposition.  The  other  suggestions  are  for  the 
use  of  the  referendum,  either  mandatory  or  optional. 
The  bill  embodies  all  three  suggestions,  and  provides  that 
an  ordinance  making  a  franchise  grant  of  more  than  five 
years'  duration  shall  not  become  effective  (a)  unless  ap- 
proved by  two-thirds  of  the  aldermen  elected,  or  (b)  un- 
less it  provides  for  a  mandatory  referendum  upon  its 
adoption,  or  (c)  unless  it  is  to  be  subject  to  an  opportu- 
nity for  a  referendum  on  petition  of  five  per  cent  of  the 
voters. 

Redistricting  of  Wards  a  Necessity. 

Another  matter  that  seems  to  require  attention  in  this 
measure  is  that  of  redistricting  the  city  into  wards. 
Shiftings  of  population  have  made  the  present  appor- 
tionment highly  inequitable.  The  25th  ward,  for  exam- 
ple, with  a  population  of  95,541,  according  to  the  school 
census  of  1916,  and  with  46,120  registered  voters  in  1917, 
has  only  two  aldermen,  the  same  number  as  other  wards 
with  half  the  population  and  in  some  cases  less  than  a 
quarter  of  the  number  of  registered  voters.  Tables  pub- 
lished in  the  appendix  give  comparative  figures  by  wards 
of  population  and  number  of  registered  voters.  It  is 
shown  by  these  tables  that  five  outlying  wards,  with  ten 
aldermen,  have  a  total  population  about  the  same  as 
eight  designated  interior  wards,  with  sixteen  aldermen. 
This,  of  course,  is  not  equal  representation. 

It  is  particularly  difficult  for  a  council  based  upon  an 
inequitable  apportionment  to  cure  the  defects.  The  in- 
voking of  outside  aid  in  some  way  becomes  almost  im- 
perative. The  people  of  Chicago,  by  their  vote  upon  the 
proposed  charter  of  1907,  showed  themselves  hostile  to 
reapportionment  of  the  city  into  wards  by  direct  enact- 
ment of  the  state  Legislature.    Therefore,  the  plan  em- 


14  Chicago  Bureau  of  Public  Efficiency 

bodied  in  the  bill  has  been  worked  out.  It  is  the  one 
feature  of  the  bill  admittedly  experimental  in  nature,  and 
based  upon  a  priori  reasoning  rather  than  upon  actual 
practical  trial  somewhere.  However,  it  seems  to  the  Bu- 
reau that  it  is  well  calculated  to  lead  the  City  out  of  a 
difficult  situation,  and  that  at  the  worst  it  can  do  no 
harm.  The  plan  is  to  enable  any  group  of  aldermen  com- 
prising one-fifth  or  more  of  the  council  to  present  a  re- 
districting  ordinance  to  the  people  for  adoption  or  rejec- 
tion, in  case  the  council  shall  fail  to  take  satisfactory 
action  on  the  subject. 

WHEN  THE  PROPOSED  CHANGES  WOULD  BECOME  EFFECTIVE. 

If  it  should  be  found  impossible  to  secure  action  from  a 
special  session  of  the  Illinois  Legislature  so  as  to  put 
into  effect  at  the  time  of  the  mayoralty  election  of  1919 
the  plan  of  government  presented  herein,  the  next  move 
should  be  to  secure  action  early  in  the  regular  legislative 
session  of  1919.  Even  if  a  mayor  be  elected  by  popular 
vote  in  1919,  under  existing  laws,  for  a  four-year  term, 
it  does  not  necessarily  follow  that  there  must  be  a  wait  of 
four  years  before  the  plan  herein  advocated  can  be  put 
into  effect.  There  is  no  constitutional  guaranty  that 
either  an  alderman  or  a  mayor  shall  be  allowed  to  serve 
out  the  full  term  for  which  he  was  elected.  The  General 
Assembly,  by  appropriate  legislation,  can  shorten  the 
term  of  either  the  mayor  or  the  aldermen.*    Whenever 


•Inasmuch  as  some  persons  have  the  impression  that  the  term  of 
a  city  official  cannot  be  shortened  by  legislative  action,  after  his  elec- 
tion, Mr.  Henry  Schofield  was  asked  by  the  Bureau  to  furnish  it  with 
a  legal  opinion  on  the  point.  Mr.  Schofield  says  the  power  of  the  Legis- 
lature in  this  matter  is  not  open  to  doubt,  as  it  has  been  passed  upon 
by  the  Supreme  Court  of  Illinois.  (People  v.  Brown,  83  111.  95;  Crook 
V.  People,  106  111.  237.)  There  is  a  constitutional  inhibition  against 
extending  by  legislative  action  the  term  of  a  public  official,  but  none 
against  shortening  the  term  of  a  municipal  official. 


City  Manager  Plan  for  Chicago  15 

this  plan  is  put  into  effect,  it  will  involve  shortening  by  a 
year  the  term  of  the  hold-over  aldermen — half  the  city 
council — elected  for  a  two-year  term  a  year  in  advance 
of  the  first  election  under  the  proposed  Act  for  choosing 
35  aldermen  for  a  four-year  term  to  constitute  the  entire 
city  council.  If  the  Legislature  should  pass  the  proposed 
bill  in  1919,  to  become  effective  when  adopted  by  the 
people  on  a  referendum  vote,  that  bill  could  make  the 
term  of  the  mayor  elected  in  1919  end,  say,  in  1921,  and 
provide  for  the  installation  of  the  new  plan  of  city  gov- 
ernment in  1921,  or  at  any  other  time  that  might  be 
specified. 


DRAFT  OF  A  BILL 

for  the 

Reorganization  of  the  Municipal  Government  of  the 
City  of  Chicago  by  Providing,  Among  Other  Things, 
for  the  Election  of  the  Mayor  by  the  City  Council, 
and  for  the  Non-Partisan  Election  of  Aldermen; 
by  Fixing  the  Number  of  Aldermen  at  35,  One 
from  Each  Ward;  and  by  Extending  the  Term  of 
Aldermen  to  Four  Years,  Subject  to  Popular  Recall 


Section  1  amends  Article  XII  of  the  Cities  and  Villages  Act  by 
amending  Sections  1  and  7  of  Part  Two  thereof,  and  by  adding  to  said 
Part  Two  fifteen  new  sections;  by  repealing  Sections  3  and  4  of  Part 
Three  of  said  Article  XII,  and  by  adding  to  said  Part  Three  nine  new 
sections;  by  repealing  the  whole  of  Part  Four  of  said  Article  XII,  and 
by  adding  to  said  Article  XII  four  new  parts  to  be  known  as  Parts 
Four,  Five,  Six,  and  Seven. 

PART  TWO. 

Concerning  the   Municipal  Officers. 
Section 

1.     Mayor  Elected  by  Council. 

7.  Office  of  City  Attorney  Abolished. 

8.  Duration  of  Term  of  Mayor. 

9.  Qualifications  of  Mayor. 

10.  Mayor — How  Commissioned. 

11.  Temporary  Disability  of  Mayor. 

12.  Mayor  Not  a  Member  of  Council. 

13.  General  Duties  of  Mayor. 

14.  Mayor  to  Prepare  Annual  Budget. 

15.  City   Clerk— Election   of— Tenure — Duties. 

16.  City  Comptroller — Election  of — Tenure — Duties. 

17.  City  Treasurer — Appointment  of — Tenure — Duties. 

18.  Qualifications  of  City  Officers. 

19.  Clerk  and  Comptroller — How  Commissioned. 

20.  Heads  of  Departments — How  Commissioned. 

21.  Departments — Creation — Number  —  Powers  —  Heads    Appointed 

by  Mayor. 

22.  Certain  Offices  Abolished— OflJces  Subject  to  Mayor's  Power  of 

Appointment. 

PART  THREE. 

Concerning  the  City  Council. 
Section 

9.     Council — How  Composed. 

10.  Aldermen — Number  of. 

11.  Aldermen — Terms  of. 

12.  Salary  of  Aldermen. 

13.  Organization  of  City  Council — Presiding  OflScer. 

14.  Elections  by  Council. 

15.  Council  to  Create  Executive  Departments. 

16.  Vote  Required  to  Pass  Ordinance  Over  Veto, 

17.  Yeas  and  Nays — Certain  Majorities  Necessary. 

18.  Repeal. 


18  Chicago  Bureau  of  Public  Efficiency 

PART  FOUR. 

Concerning  Municipal  Eiections. 
Section 

1.  General    Municipal    Elections — Held    Quadrennially — Terms    of 

Aldermen  Elected  Prior  to  First  Quadrennial  Election. 

2.  Aldermen — One  From  Each  Ward. 

3.  Candidate    Receiving    Majority    Elected — Supplementary    Elec- 

tions— Swearing  in  of  Votes. 

4.  Propositions  Not  to  Be  Submitted  at  Supplementary  Elections. 

5.  Nominations  by  Petition — Party  Nominations  Prohibited. 

6.  Candidate  for  Alderman  May  Withdraw. 

7.  Ballots — Form — Type — Order  of  Names — Rotation   by   Series — 

Allotment    by    Precincts — Party    Designations    Prohibited — 
Separate  from  Other  Ballots  Having  Names  Thereon. 

8.  Challengers  and  Watchers  at  Polling  Places. 

9.  Certificate  of  Election — Issued  After  Supplementary  Election. 
10.    Election  Laws  Apply  Where  Consistent  Herewith. 

PART  FIVE. 

Concerning  the  Recall  and  Removal  of  Aldermen. 

Section 

1.  Aldermen  Subject  to  Recall. 

2.  Procedure  to  Effect  Removal — Form  of  Petition. 

3.  Petition — Proceedings  on  Filing  of — Election  Ordered  by  Coun- 

cil— Election  Authorities  Notified. 

4.  Nominations  of  Candidates  for  Alderman  at  Recall  Election. 

5.  Ballots — Proposition  Submitted — Names  of  Candidates. 

6.  Ballots — Manner  of  Counting — Supplementary  Election. 

7.  Reimbursement  of  Alderman  Retained  in  Office  at  Recall  Elec- 

tion. 

8.  Recall   and    Supplementary   Recall   Elections   Deemed    Special 

Elections. 

PART  SIX. 

Concerning  the  Redistricting  of  the  City  Into  Wards. 

Section 

1.  City  to  Have  Thirty-Five  Wards. 

2.  Additional  Territory  to  be  Annexed  to  Existing  Wards. 

3.  City  to  be  Redlstricted  after  Adoption  of  this  Act. 

4.  When  Redistricting  Ordinance  Takes  Effect — Substitute  Ordi- 

nance May  be  Submitted. 

5.  Failure  of  Council  to  Act— One-Fifth  of  the  Aldermen  May  Sub- 

mit Redistricting  Ordinance. 

6.  Redistricting  Ordinance  Submitted — Form  of  Ballot 

7.  Redistricting    Ordinance    Submitted — When    Approved    and    in 

Effect. 

8.  Election  and  Ballot  Laws  to  Apply  Where  Consistent  Herewith. 

9.  Redistricting  in  1931  and  Decennially  Thereafter. 

PART   SEVEN. 

Concerning  the  Adoption  of  This  Act. 
Section 

1.  Act  to  be  Submitted  to  Popular  Vote. 

2.  Form  of  Ballot — Adoption. 


A    BILL 

FOB 

An  Act  to  Amend  an  Act  Entitled,  "An  Act  to  Pro- 
vide FOR  the  Incorporation  of  Cities  and  Villages/' 
Approved  Aprel  10,  1872,  as  Amended  by  Subsequent 
Acts. 


Section  1.]  Be  it  enacted  by  the  People  of  the  State  of 
Illinois,  represented  in  the  General  Assembly:  That  an 
Act  entitled,  "An  Act  to  provide  for  the  incorporation  of 
cities  and  villages,"  approved  April  10, 1872,  as  amended 
by  subsequent  Acts,  be  and  the  same  hereby  is  amended, 
in  pursuance  of  Section  34  of  Article  IV  of  the  Constitu- 
tion, to  provide  a  system  of  local  government  for  the  City 
of  Chicago,  by  amending  Sections  1  and  7  of  Part  Two  of 
Article  XII  of  said  Act  so  as  to  read  as  Sections  1  and  7 
of  Part  Two  herein,  and  by  adding  to  said  Part  Two  fif- 
teen new  sections  to  be  known  as  Sections  8,  9,  10,  11, 
12,  13,  14,  15,  16,  17,  18,  19,  20,  21,  and  22;  by  repealing 
Sections  3  and  4  of  Part  Three  of  said  Article  XII,  and  by 
adding  to  said  Part  Three  nine  new  sections  to  be  kno\vn 
as  Sections  9, 10, 11, 12, 13, 14, 15, 16,  and  17 ;  by  repealing 
the  whole  of  Part  Four  of  said  Article  XII,  added  by  Act 
approved  June  27,  1913;  and  by  adding  to  said  Article 
XII  four  new  parts  to  be  known  as  Parts  Four,  Five,  Six, 
and  Seven ;  which  amended  sections  and  new  sections  and 
parts  shall  read  as  follows : 


20  Chicago  Bureau  of  Public  Efficiency 

Part  Two. 

concerning  the  municipal  officers. 

[Section  1  and  Sections  8  to  22,  both  inclusive,  of  Part 
Ttvo  do  not  become  operative  until  the  expiration  of  the 
term  of  the  mayor  in  office  when  this  Act  is  adopted  by 
the  voters.] 

Section  1.  Mayor  elected  by  council.]  The  mayor 
shall  be  elected  by  the  city  council.  The  first  mayor 
elected  by  the  city  council  shall  be  the  lawful  successor 
of  the  mayor  in  office  when  this  Act  is  adopted  by  the 
voters. 

§7.  Office  of  city  attorney  abolished.]  From  and 
after  the  adoption  of  this  Act  the  office  of  city  attorney 
of  the  city  of  Chicago  shall  be  abolished. 

<§8.  Duration  of  term  of  Mayor.]  The  maj^or  shall 
have  no  fixed  term  but  shall  hold  his  office  during  the 
pleasure  of  the  city  council. 

§9.  Qualifications  of  mayor.]  Any  competent  per- 
son who  is  a  citizen  of  the  United  States  shall  be  eligible 
to  hold  the  office  of  mayor. 

§10.  Mayor — ^how  commissioned.]  The  mayor  shall 
be  commissioned  by  warrant  under  the  corporate  seal 
signed  by  the  city  clerk  and  the  president  of  the  city 
council. 

§11.  Temporary  disability  of  mayor.]  The  city 
council  may  provide  by  ordinance  for  the  discharge  of 
the  powers  and  duties  of  the  office  during  a  temporary  ab- 
sence or  disability  of  the  mayor. 

§12.  Mayor  not  a  member  of  council.]  The  mayor 
shall  not  be  a  member  of  the  city  council  but  the  council 
may  provide  that  he  shall  have  a  seat  therein,  with  the 


City  Manager  Plan  for  Chicago  21 

right  of  introducing  ordinances  and  other  measures,  and 
of  debating  but  not  of  voting. 

<^13.  General,  duties  of  ma  yob.]  The  mayor  elected 
by  the  city  council  as  herein  provided  shall  have  all  the 
powers  and  perform  all  the  duties  now  or  hereafter  pre- 
scribed by  law  or  by  the  city  council  for  the  mayor,  ex- 
cept as  herein  otherwise  provided.  He  shall  be  the  chief 
executive  officer  of  the  city  and,  under  the  direction  of 
the  city  council,  shall  administer  the  executive  power  of 
the  city.  He  shall  have  the  sole  power  to  appoint  and  to 
remove  at  will  the  head  of  every  principal  department 
of  the  city  government,  except  the  city  clerk  and  the  city 
comptroller.  He  shall  not  be  required  to  prefer  charges 
against  any  officer  removed  by  him  nor  shall  he  be  re- 
quired to  state  the  cause  of  such  removal.  He  shall  give 
notice  to  the  city  council  of  every  appointment  made  by 
him,  and  he  shall  give  like  notice  of  the  death,  resignation, 
or  removal  from  office  of  any  officer  appointed  by  him. 
The  city  council  shall  have  no  power  to  reinstate  any 
officer  removed  by  the  mayor. 

§14.  Mayor  to  prepare  annual  budget.]  Prior  to 
the  close  of  each  fiscal  year  of  the  city,  the  mayor  shall 
prepare  and  submit  to  the  city  council  an  estimate  of  the 
expense  of  conducting  the  affairs  of  the  city  for  the  fol- 
lowing fiscal  year.  Such  estimate  shall  be  prepared  and 
submitted  at  such  time  as  the  council  may  designate  and 
shall  set  forth : 

(1)  An  itemized  estimate  of  the  expense  of  conduct- 
ing each  department  and  office  of  the  city  government. 

(2)  Comparisons  of  such  estimates  with  the  corre- 
sponding items  of  expenditure  for  the  last  complete  fis- 
cal year,  and  with  the  expenditures  of  the  current  fiscal 
year  plus  an  estimate  of  the  expenditures  necessary  to 
complete  the  current  fiscal  year. 


22  Chicago  Bureau  of  Public  Efficiency 

(3)  A  detailed  statement  of  the  total  probable  in- 
come of  the  city  from  taxes  and  all  other  sources  for  the 
current  and  also  the  following  fiscal  year. 

(4)  The  amounts  required  for  interest  on  the  city's 
debt,  and  for  sinking  funds  and  the  pa^Tiient  of  bonds 
as  required  by  law. 

(5)  The  total  amount  of  outstanding  city  debt  with  a 
schedule  of  maturities  of  bond  issues. 

(6)  Such  other  information  as  the  council  may  direct 
or  require  or  as  the  mayor  may  deem  necessary  to  the 
end  that  the  council  may  fully  understand  the  money  ex- 
igencies and  demands  upon  the  city  for  the  ensuing  fis- 
cal year. 

It  shall  be  the  duty  of  the  city  clerk,  the  city  comptrol- 
ler, and  every  other  officer  of  the  city  government,  upon 
the  request  of  the  mayor,  to  prepare  and  submit  to  him, 
in  such  form  as  he  may  prescribe,  all  such  information  as 
he  may  deem  necessary  or  proper  to  enable  him  to  pre- 
pare the  estimate  herein  required  of  him. 

§  15.  City  clerk — election  of — tenure — duties.]  The 
city  clerk  shall  be  elected  by  the  city  council.  He  shall 
have  no  fixed  term  but  shall  hold  office  during  the  pleas- 
ure of  the  city  council.  He  shall  perform  the  duties  now 
or  hereafter  prescribed  by  law  or  by  the  city  council  for 
the  city  clerk. 

§16.  City  comptroller — election  of — tenure — du- 
ties.] The  city  comptroller  shall  be  elected  by  the  city 
council.  He  shall  have  no  fixed  term  but  shall  hold  office 
during  the  pleasure  of  the  city  council.  He  shall  be  the 
chief  accounting  and  auditing  officer  of  the  city.  He  shall 
have  the  power  and  duty — 

(1)     To  keep  an  account  of  all  appropriations  made  by 


City  Manager  Plan  for  Chicago  23 

the  council  and  of  all  expenditures  made  or  contracted 
to  be  made  under  such  appropriations; 

(2).  To  require  daily  reports  to  him  from  each  depart- 
ment and  officer  of  the  city  showing  the  receipt  of  all 
moneys  by  such  department  or  officer  and  the  disposition 
thereof ; 

(3)  To  devise,  install,  and  maintain  accounting  pro- 
cedures for  the  city  adequate  to  record  in  detail  all  trans- 
actions affecting  the  ac^iuisition,  custodianship,  and  dis- 
position of  values,  including  cash  receipts  and  disburse- 
ments ;  and  to  present  the  recorded  facts  periodically  to 
officials  and  to  the  public  in  such  summaries  and  analyti- 
cal schedules  in  detailed  support  thereof  as  shall  be  nec- 
essary to  show  the  effect  of  such  transactions  upon  the 
city's  finances  and  as  to  each  department  or  office  of  the 
city  government; 

(4)  To  prescribe  the  methods  of  keeping  accounts  by 
all  departments  and  officers  aad  the  form  of  all  financial 
reports  and  statements  to  be  rendered  by  them ; 

(5)  To  direct  and  supervise  the  work  of  all  book- 
keepers and  other  employes  charged  with  keeping  books 
of  financial  account  in  all  departments  and  offices  of  the 
city  government; 

(6)  To  audit  and  approve  for  pa>Tnent  all  claims  and 
demands  against  the  city,  and  to  prepare  and  disburse 
all  warrants  drawn  upon  the  city  treasurer; 

(7)  To  take  charge,  custody,  and  control  of  all  deeds, 
leases,  warrants,  vouchers,  books,  and  papers  of  any  kind 
the  custody  and  control  of  which  is  not  given  to  any  other 
officer. 

The  city  comptroller  shall  have  such  other  powers  and 
perform  such  other  duties  as  are  or  may  be  hereafter 
prescribed  by  law  or  by  the  city  council  for  the  city 


24  Chicago  Bureau  of  Public  Efficiency 

comptroller ;  Provided,  the  city  comptroller  shall  not  ex- 
ercise a  general  supervision  over  officers  of  the  city,  ex- 
cept as  herein  provided,  and  shall  not  be  required  to 
submit  any  report  of  estimates  of  moneys  necessary  to 
defray  the  expenses  of  the  city  as  provided  in  Section 
17  of  Article  VII  of  the  Act  above  referred  to  by  its 
title. 

§  17.  City  treasurer — appointment  of — tenure — du- 
ties.] The  city  treasurer  shall  be  appointed  by  the 
mayor.  He  shall  have  no  fixed  term  but  shall  hold  office 
at  the  will  of  the  mayor.  He  shall  perform  the  duties 
now  or  hereafter  prescribed  by  law  or  by  the  city  council 
for  the  city  treasurer.  He  shall  be  the  head  of  the  prin- 
cipal department  charged  with  the  administration  of  mat- 
ters relating  to  the  receipt,  custody,  and  disbursement  of 
moneys  belonging  to  the  city. 

§18.  Qualifications  of  city  officers.]  Any  compe- 
tent person  who  is  a  citizen  of  the  United  States  shall 
be  eligible  to  hold  the  office  of  city  clerk,  city  comptroller, 
or  the  head  of  a  principal  department  of  the  city  govern- 
ment. 

§19.  Clerk  and  comptroller — how  commissioned.] 
The  city  clerk  and  the  city  comptroller  shall  be  commis- 
sioned by  warrant  under  the  corporate  seal  signed  by  the 
city  clerk  and  the  president  of  the  city  council. 

§  20.  Heads  of  departments — how  commissioned.]  All 
heads  of  principal  departments  of  the  city  government 
shall  be  commissioned  by  warrant  under  the  corporate 
seal  signed  by  the  city  clerk  and  the  mayor. 

§  21.  Departments  —  creation  —  number — powers  — 
heads  appointed  by  mayor.]  The  executive  powers  and 
duties  of  the  city  shall  be  administered  through  depart- 
ments of  the  city  government.    Such  departments  shall 


City  Manager  Plan  for  Chicago  25 

be  as  many  in  number  as  the  city  council  shall  deem  nec- 
essary, and  shall  be  created  and  established,  and  the  scope 
of  the  powers  and  duties  thereof  shall  be  prescribed,  by 
the  city  council  by  ordinance.  Every  such  department 
shall  be  deemed  a  principal  department  of  the  city 
government,  and  shall  have  at  its  head  one  officer  whose 
title  shall  be  fixed  by  ordinance  and  who  shall  be  ap- 
pointed by  the  mayor  without  the  approval  of  the  city 
council  and  who  shall  have  no  fixed  term  but  shall  hold 
office  at  the  will  of  the  mayor.  Every  such  department 
shall  contain  such  bureaus  or  divisions  as  the  city  coun- 
cil may  provide.  Except  as  otherwise  provided  in  this 
Act,  all  the  powers  and  duties  now  or  hereafter  pre- 
scribed by  law  or  by  the  city  council  for  the  officers  of 
the  city  government  or  any  of  them  shall  be  distributed 
among  such  departments  and  the  officers  thereof.  The 
city  council  may  at  any  time  by  ordinance  discontinue 
any  such  department  or  change  the  scope  of  its  functions 
and  powers  or  combine  such  functions  and  powers  with 
those  of  any  other  department  or  departments.  No  offi- 
cer holding  any  office  which  may  at  any  time  be  discon- 
tinued by  the  city  council  shall  have  any  claim  against 
the  city  on  account  of  his  salary  after  such  discontinu- 
ance. 

§  22.  Certain  offices  abolished — offices  subject 
TO  mayor's  power  of  appointment.]  No  legislative  or 
executive  officer  of  the  city  government,  except  aldermen, 
shall  be  elected  by  popular  vote  after  the  expiration  of 
the  term  of  the  mayor  in  office  when  this  Act  is  adopted  by 
the  voters.  After  such  time  all  offices  and  places  of  em- 
ployment not  within  the  classified  civil  service  of  the  city 
created  by  the  city  council  shall  be  subject  to  the  mayor's 
power  of  appointment  and  removal  at  will,  without  the 
concurrence  of  the  city  council,  and  after  such  time  the 


26  Chicago  Bureau  of  Public  Efficiency 

city  council  shall  have  no  power  to  create  any  such  oflQce 
or  place  of  emplojTnent  exempt  from  the  mayor's 
power  of  appointment  and  removal;  Provided,  that 
such  members  of  the  law  department,  except  the 
head  thereof,  as  may  be  by  law  from  time  to 
time  exempt  from  such  classified  service,  shall  be  ap- 
pointed and  may  be  removed  at  will  by  the  head  of  such 
department.  The  term  of  any  office  or  place  of  employ- 
ment not  within  the  classified  civil  service,  created  by  the 
city  council  after  the  adoption  of  this  Act  by  the  voters, 
shall  terminate  at  the  expiration  of  the  term  of  office  of 
the  mayor  in  office  when  this  Act  is  adopted  by  the  voters, 
and  the  city  council  shall  have  no  power  to  make  any 
longer  term  for  any  such  office  or  place  of  emplojTnent. 
All  other  offices  and  places  of  employment  not  within  the 
classified  civil  service  of  the  city  created  by  the  city  coun- 
cil shall  terminate  on  the  expiration  of  the  terms  of 
those  in  office  at  the  expiration  of  the  term  of  the  mayor 
in  office  when  this  Act  is  adopted  by  the  voters ;  Provided, 
that  every  such  officer  or  employe  then  holding  office  or 
employment  shall  continue  in  the  discharge  of  his  duties, 
subject,  however,  to  the  mayor's  power  of  appointment 
and  removal,  until  the  city  council  shall  have  provided  for 
the  discontinuance  of  the  duties  of  such  office  or  place  of 
emplojnuent  or  for  the  transfer  thereof  to  a  department 
or  other  officer  or  employe  of  the  city  government.  Any 
officer  or  employe  to  whom  the  city  council  may  by  ordi- 
nance transfer  any  part  or  all  the  duties  or  powers  of  any 
officer  or  employe  whose  office  is  hereby  terminated  shall 
as  to  such  powers  and  duties  be  deemed  the  successor  of 
such  officer  or  employe  whose  office  or  place  of  employment 
is  so  terminated.  Any  officer  on  whom  the  city  council 
may  by  ordinance  devolve  the  duties  of  city  marshal 
shall  possess  the  power  and  authority  of  a  constable  by 
common  law  and  under  the  statutes  of  this  state. 


City  Manager  Plan  for  Chicago  27 

Part  Three. 

concerning  the  city  council. 

[Sections  9  to  17,  both  inclusive,  of  Part  Three  do  not 
become  operative  until  after  the  first  quadrennial  election 
of  aldermen  provided  for  in  Part  Four,  Section  1,  of  this 
Act.] 

Section  9.  Council — how  composed.]  The  city  coun- 
cil shall  consist  of  the  aldermen. 

^10.  Aldermen — number  of.]  The  number  of  al- 
dermen shall  be  thirty-five,  one  from  each  ward. 

<§  11.  Aldermen — terms  of.]  Subject  to  the  recall  and 
removal  provisions  of  this  Act,  aldermen  shall  hold  their 
oflBce  for  the  term  of  four  years  and  until  their  successors 
are  elected  and  qualified. 

^12.  Salary  of  aldermen.]  The  aldermen  may  re- 
ceive for  their  services  such  compensation  as  shall  be 
fixed  by  ordinance  not  to  exceed  $4,000  per  annum  for 
each  alderman.  The  salaries  of  the  aldermen  elected  at 
the  first  quadrennial  election  provided  for  in  this  Act 
shall  be  fixed  by  the  outgoing  council. 

^13.  Organization  of  city  council — presiding  offi- 
cer.] A  regular  meeting  of  the  city  council  shall  be  held 
not  more  than  five  days  after  certificates  of  election  shall 
have  been  issued  to  the  aldermen  elected  from  a  majority 
of  the  wards  at  a  general  election  for  aldermen.  The 
city  clerk  shall  fix  the  time  and  place  for  holding  such 
meeting  and  shall  give  at  least  twenty-four  hours'  notice 
of  the  time  and  place  of  such  meeting  by  mail  to  each 
of  the  aldermen  elected.  Such  meeting  shall  be  called 
to  order  by  the  city  clerk,  who  shall  preside  over  it  until 
a  temporary  presiding  oflScer  thereof   shall   have  been 


28  Chicago  Bureau  of  PMic  Efficiency 

chosen  and  shall  have  taken  his  seat.  At  such  meeting, 
or  as  soon  thereafter  as  may  be,  and  annually  there- 
after, the  city  council  shall  elect  one  of  its  members  to  act 
as  its  presiding  officer  for  one  year.  Such  presiding  of- 
ficer shall  be  known  as  the  president  of  the  city  council 
and  shall  be  entitled  to  cast  one  vote  on  all  questions. 
In  the  event  of  the  absence  or  disability  of  such  presi- 
dent, the  council  shall  choose  one  of  its  members  to  act 
as  temporary  presiding  officer.  Whenever  a  vacancy  oc- 
curs in  the  office  of  president,  the  city  council  shall  elect 
one  of  its  members  to  serve  as  president  during  the  re- 
mainder of  the  unexpired  term  of  president.  The  election 
of  president  shall  be  by  roll  call  to  be  recorded  on  the 
journal  of  the  proceedings  of  the  city  council,  and  the 
votes  of  a  majority  in  number  of  the  aldermen  elected 
shall  be  required  for  a  choice. 

§14.  Elections  by  council.]  The  mayor,  the  city 
clerk,  and  the  city  comptroller  shall  be  elected  separately 
by  the  city  council  by  resolution  concurred  in  by  a  ma- 
jority of  the  aldermen  elected  on  a  ''Yea"  and  "Nay" 
vote  which  shall  be  entered  on  the  journal  of  its  proceed- 
ings. By  resolution,  adopted  in  like  manner,  the  city 
council  may  at  any  time  remove  the  mayor,  city  clerk, 
or  city  comptroller.  Upon  a  vacancy  occurring  in  any 
such  office  by  death,  resignation,  removal,  or  otherwise, 
the  city  council  shall  fill  such  office  by  election  in  the  man- 
ner hereinabove  provided. 

<§  15.  Council  to  create  executive  departments.]  The 
city  council  shall  have  power  to  create  and  abolish  execu- 
tive departments  of  the  city  government  and  the  office  of 
head  of  each  such  department. 

"§.  16.  Vote  required  to  pass  ordinance  over  veto.]  To 
pass  an  ordinance  over  the  veto  of  the  mayor  shall  re- 


City  Manager  Plan  for  Chicago  29 

quire  so  many  votes,  and  no  more,  as  are  required  to  pass 
such  ordinance  in  the  first  instance. 

§  17.    Yeas  and  nays — certain  majorities  necessary.] 
The  '  *  Yeas ' '  and '  *  Nays ' '  shall  be  taken  upon  the  passage 
of  all  ordinances  and  on  all  propositions  to  create  any 
liability  against  the  city  or  for  the  expenditure  or  ap- 
propriation of  its  money  and  in  all  other  cases  at  the  re- 
quest of  any  member.    The  **Yeas"  and  "Nays"  when 
taken  shall  be  entered  on  the  journal  of  the  proceedings 
of  the  city  council.    The  concurrence  of  a  majority  of  all 
the  members  elected  in  the  city  council  shall  be  necessary 
to  the  passage  of  any  ordinance  or  proposition  as  afore- 
said and  to  the  passage  of  any  resolution,  but  an  order 
directing  any  officer  of  the  city  government  to  do  or  re- 
frain from  doing  any  act  or  thing  which  lawfully  may  be 
the  subject  of  an  order  may  be  adopted  by  the  concurring 
vote  of  a  majority  of  the  aldermen  present  at  any  meet- 
ing and  voting  thereon;  Provided,  the  concurring  vote 
of  two-thirds  of  all  the  aldermen  elected  shall  be  required 
to  sell  any  city  or  school  property.    A  permit  or  license 
for  the  use  of  any  street,  alley,  highway,  bridge,  viaduct, 
or  other  public  place  shall  require  the  concurring  vote 
of  a  majority  of  all  the  members  elected  in  the  city  coun- 
cil, but  no  such  permit  or  license  for  a  period  of  more 
than  five  years  shall  be  granted,  (a)  unless  the  ordinance 
making  such  grant  receives  the  concurring  vote  of  two- 
thirds  of  all  the  aldermen  elected,  and  unless  it  contains 
a  declaration  that  it  shall  take  effect  without  either  the 
mandatory  or  optional  referendum  to  the  voters  in  this 
section  provided  for,  or  (b)  unless  such  ordinance  pro- 
vides that  the  question  of  its  adoption  shall  be  submitted 
to  the  legal  voters  of  the  entire  city,  and  that  it  shall  not 
go  into  effect  unless  approved  by  a  majority  of  such  legal 
voters  voting  thereon,  or  (c)  unless  such  ordinance  pro- 


so  Chicago  Bureau  of  Public  Efficiency 

vides  that  it  shall  not  go  into  effect  until  the  expiration  of 
sLxty  days  from  and  after  its  passage,  and  that,  if  within 
such  sixty  days  there  is  filed  with  the  board  of  election 
commissioners  of  the  city  of  Chicago  a  petition,  signed  by 
the  legal  voters  of  such  city  equal  in  number  to  at  least 
five  per  cent  of  the  legal  voters  of  the  city  voting  at  the 
last  general  election  for  aldermen,  demanding  that  such 
ordinance  be  submitted  to  a  popular  vote,  then  such  ordi- 
nance shall  not  go  into  effect  unless  the  question  of  ita 
adoption  shall  first  be  submitted  to  the  electors  of  the  city 
and  approved  by  a  majority  of  those  voting  thereon. 
Upon  the  filing  of  such  a  petition  it  shall  be  the  duty  of 
said  board  of  election  commissioners  to  submit  the  ques- 
tion of  the  adoption  of  such  ordinance  to  the  electors  of 
the  city  at  the  next  general,  municipal,  or  special  election 
in  and  for  the  entire  city  to  be  held  not  less  than  forty 
days  from  and  after  the  filing  of  such  petition ;  Provided, 
that,  if  at  the  time  of  filing  such  petition  no  date  shall 
have  been  fixed  for  the  holding  of  any  such  general, 
municipal,  or  special  election  within  three  months  from 
and  after  the  date  of  such  filing,  then  the  city  council 
may  by  ordinance  order  and  fix  the  date  for  holding  a 
special  election  at  which  the  question  of  the  adoption  of 
such  ordinance  shall  be  submitted  to  a  popular  vote.  The 
city  council  is  hereby  expressly  authorized  and  empow- 
ered to  direct  that  any  such  ordinance  be  submitted,  or 
that  it  may  be  submitted,  to  a  popular  vote,  as  above 
provided,  and  that  whenever  so  submitted  such  ordinance 
shall  not  go  into  effect  unless  a  majority  of  the  electors 
of  the  city  voting  thereon  shall  vote  for  its  adoption. 
It  shall  be  the  duty  of  the  city  clerk  to  certify  promptly 
to  said  board  of  election  commissioners  the  passage  of 
any  ordinance  directing  the  submission  of  the  question  of 
the  adoption  of  such  ordinance  to  a  popular  vote,  or  or- 


City  Manager  Plan  for  Chicago  31 

dering  and  fixing  the  time  of  holding  any  special  election 
herein  provided  for. 

^18.  Repeal.]  Sections  three  (3)  and  four  (4)  of 
Part  Three  of  Article  XII  of  the  Act  above  referred  to 
by  its  title  are  hereby  repealed;  said  repeal  to  be  in 
force  and  effect  and  to  become  operative  at  and  after  the 
first  quadrennial  election  of  aldermen  herein  provided  for 
in  Part  Four.  Part  Four  of  Article  XII  of  the  Act  above 
referred  to  by  its  title,  being  an  Act  approved  June  27, 
1913,  is  hereby  repealed;  said  repeal  to  be  in  force  and 
effect  and  to  become  operative  from  and  after  the  adop- 
tion of  this  Act  by  the  voters. 

Part  Four. 

concerning  municipal  elections. 

Section  1.  General  municipal  elections — held  quad- 
rennially— TERMS   OF   aldermen    ELECTED   PRIOR  TO   FIRST 

QUADRENNIAL  ELECTION.]  A  general  election  for  alder- 
men shall  be  held  on  the  first  Tuesday  of  April  every 
four  years,  beginning  in  the  calendar  year  of  the  expira- 
tion of  the  term  of  the  mayor  in  office  when  this  Act  is 
adopted  by  the  voters.  The  term  of  office  of  all  alder- 
men who  are  elected  at  the  election  of  aldermen  next 
preceding  the  said  first  quadrennial  election  of  aldermen 
shall  be  only  until  the  aldermen  are  elected  at  such  first 
quadrennial  election  of  aldermen,  and  are  qualified. 

^2.  Aldermen — one  from  each  ward.]  At  such  quad- 
rennial elections  one  alderman  shall  be  elected  from  each 
ward.  The  alderman  elected  from  any  ward  at  the  first 
quadrennial  election  shall  be  the  successor  of  the  alder- 
men from  such  ward  whose  terms  expire  at  that  time. 

§3.  Candidate  receiving  majority  elected — supple- 
mentary ELECTIONS — swearing  IN  OF  VOTES.]    The  caudi- 


32  Chicago  Bureau  of  Public  Efficiency 

date  receiving  a  majority  of  the  votes  cast  in  any  ward 
for  alderman  at  any  quadrennial  election  or  special  elec- 
tion shall  be  declared  elected.  In  the  event  that  no  can- 
didate receives  a  majority  of  such  votes,  a  supplementary 
election  shall  be  held  in  such  ward  three  weeks  subsequent 
to  the  day  of  holding  such  quadrennial  or  special  election. 
At  such  supplementary  election,  the  names  of  the  candi- 
dates receiving  the  highest  and  second  highest  numbers 
of  votes  at  the  preceding  quadrennial  or  special  election, 
and  no  others,  shall  be  placed  on  the  official  ballot.  The 
candidate  receiving  the  highest  number  of  votes  at  such 
supplementary  election  shall  be  declared  elected.  There 
shall  be  no  previous  revision  of  the  registry  for  any  such 
supplementary  election  which  shall  be  deemed  a  special 
election  under  the  election  and  ballot  laws  in  force  in  the 
city  of  Chicago,  and  every  legal  voter  who  is  not  regis- 
tered shall  have  the  same  right  to  vote  at  such  election 
as  is  given  unregistered,  but  otherwise  qualified,  voters 
at  special  elections,  in  accordance  with  the  provisions  of 
such  election  and  ballot  laws  in  force  in  Chicago. 

^4.  Propositions  not  to  be  submitted  at  supplemen- 
tary ELECTIONS.]  No  propositiou  calling  for  the  approval 
or  disapproval  of  the  voters  of  the  city  of  Chicago  shall 
be  submitted  at  any  such  supplementary  election. 

§5.  Nominations  by  petition — party  nominations  pro- 
hibited.] All  nominations  for  the  office  of  alderman  at 
any  quadrennial  or  special  election  shall  be  by  peti- 
tion. All  petitions  for  nomination  of  candidates  for  the 
office  of  alderman  shall  be  signed  by  registered 
voters  of  the  ward  equal  in  number  to  not  less  than 
one  per  cent  nor  more  than  three  per  cent  thereof.  All 
such  petitions,  and  the  procedure  with  respect  thereto, 
shall  conform  in  all  other  respects  to  the  provisions  of  the 


City  Manager  Plan  for  Chicago  33 

election  and  ballot  laws  in  force  in  the  city  of  Chicago 
concerning  the  nomination  of  independent  candidates  for 
public  office  by  petition;  Provided,  that  no  petition  for 
nomination  for  the  office  of  alderman  shall  be  valid  which 
contains  a  statement  of,  or  reference  to,  any  political 
party  or  any  political  principle.  No  political  party  now 
or  hereafter  organized  or  recognized  by  or  under  any  law 
of  this  state  shall  have  the  right  to  make  any  nomination 
for  the  office  of  alderman  from  any  ward. 

•^G.  Candidate  for  alj)erman  may  withdraw.]  Any 
candidate  for  the  office  of  alderman  may  withdraw  his 
name  as  a  candidate  for  such  office  by  filing  with  the  board 
of  election  commissioners  of  the  city  of  Chicago,  not  later 
than  twenty  days  before  the  holding  of  the  election,  his 
written  request  signed  by  him  and  duly  acknowledged 
before  an  officer  qualified  to  take  acknowledgments  of 
deeds;  whereupon  his  name  sliall  not  be  printed  as  a  can- 
didate upon  the  official  ballot. 

§  7.    Ballots — form — t\"pe — order  of  names — rotation 

BY  series — allotment  BY  PRECINCTS — PARTY  DESIGNATIONS 
prohibited SEPARATE  FROM   OTHER  BALLOTS   HAVTNO  NAMES 

THEREON.]  Ballots  uscd  at  any  quadrennial  or  special 
election  held  under  the  provisions  of  this  Act  in  addition 
to  other  requirements  of  law  shall  conform  to  the  follow- 
ing requirements : 

(1)  At  the  top  of  every  ballot  the  following  words  shall 
be  printed  in  capital  letters : 

"For  Alderman  of ward." 

(2)  Immediately  below  said  words  shall  be  printed 
in  small  letters  the  direction  to  voters:    **Vote  for  one." 

(3)  Following  thereupon  shall  be  printed  the  names 
of  the  candidates  for  the  office  of  alderman  from  the  ward 
in  which  the  ballots  are  to  be  used  and  below  the  name 


34  Chicago  Bureau  of  Public  Efficiency 

of  each  candidate  shall  be  printed  his  place  of  residence, 
stating  the  street  and  number  (if  any) ;  the  names  of 
candidates  shall  be  printed  in  capital  letters  not  less  than 
one-eighth  nor  more  than  one-fourth  of  an  inch  in  height, 
and  immediately  at  the  left  of  the  name  of  each  candidate 
shall  be  printed  a  square,  the  sides  of  which  shall  not  be 
less  than  one-fourth  of  an  inch  in  length;  the  names  of 
all  candidates  shall  be  printed  in  a  column  and  arranged 
in  the  order  hereinafter  designated ;  all  the  names  of  can- 
didates shall  be  printed  in  uniform  type;  all  places  of 
residence  of  such  candidates  shall  be  printed  in  uniform 
type;  all  squares  upon  said  ballots  shall  be  of  uniform 
size ;  all  spaces  between  the  names  of  the  candidates  shall 
be  of  uniform  size. 

(4)  Said  ballots  to  be  used  in  any  ward  shall  be  pre- 
pared in  as  many  series  as  there  are  candidates  for  the 
oflBce  of  alderman  from  such  ward ;  the  ballots  of  the  first 
series  shall  contain  all  the  names  of  the  candidates,  one 
immediately  follo^\dng  the  other  in  alphabetical  order  ac- 
cording to  their  surnames,  and  the  order  of  names  in  one 
series  shall  be  preserved  in  the  next  subsequent  series 
except  as  hereinafter  provided ;  the  name  appearing  first 
in  said  first  series  shall  in  the  second  series  be  printed 
after  all  the  other  names;  the  name  appearing  first  in 
said  second  series  shall  be  in  the  third  series  printed 
after  all  the  other  names,  and  so  on  successively,  the  name 
at  the  top  in  any  series  being  placed  at  the  bottom  in 
the  next  succeeding  series,  and  the  name  next  to  the 
top  in  any  series  being  successively  advanced  to  the  top 
in  the  next  succeeding  series  until  the  name  of  each 
candidate  shall  appear  at  the  head  of  the  list  of  candi- 
dates in  one  series. 

(5)  Each  precinct  of  any  ward  shall  be  allotted  at 


City  Manager  Plan  for  Chicago  35 

least  as  many  ballots  of  any  one  series  as  there  are  quali- 
fied voters  in  such  precinct.  Every  precinct  in  such 
ward  shall  be  allotted  a  different  series  of  ballots  unless 
there  are  more  precincts  in  such  ward  than  there  are 
series  of  ballots  printed  for  such  ward.  The  first  precinct 
of  each  ward  shall  be  allotted  the  first  series  of  ballots 
prepared  for  such  ward,  the  second  precinct  of  such 
ward  the  second  series,  and  so  on  successively  until  the 
entire  series  of  ballots  shall  have  been  exhausted,  where- 
upon the  next  precinct  of  such  ward  shall  be  allotted  the 
first  series  of  ballots  and  so  on  in  rotation  until  all  the 
precincts  of  such  ward  shall  have  been  supplied  with  the 
requisite  number  of  ballots;  Provided,  however,  that  in 
the  event  there  are  more  series  of  ballots  than  there  are 
precincts  in  any  one  ward,  then  the  ballots  for  such  ward 
shall  be  so  distributed  in  said  ward  that  an  equal  number 
of  each  series  of  ballots  as  nearly  as  possible  shall  be 
allotted  to  each  precinct  of  such  ward  irrespective  of  the 
number  of  precincts  in  such  ward. 

(6)  On  the  back  or  outside  of  the  ballot  of  each  pre- 
cinct so  as  to  appear  when  folded  shall  be  printed  the 
appropriate  words  designating  said  ballot  followed  by  the 
designation  of  said  precinct,  the  date  of  the  election,  and 
a  facsimile  of  the  signature  of  the  proper  election  official. 

(7)  No  party  circle,  platform,  principle,  appellation, 
or  mark  whatever  shall  be  printed  upon  said  ballots. 

(8)  The  ballots  for  the  office  of  alderman  shall  be  sep- 
arate from  any  other  ballots  used  at  a  municipal  election 
except  that  any  proposition  not  required  by  law  to  be  sub- 
mitted on  a  separate  ballot  from  that  containing  names 
of  persons  to  be  voted  for  may  be  submitted  in  the 
manner  provided  by  law  upon  the  same  ballot  as  that  used 
for  the  election  of  aldermen. 


36  Chicago  Bureau  of  Public  Efficiency 

^8.  Challengers  and  watchers  at  polling  places.] 
Any  candidate  for  the  office  of  alderman  from  any  ward 
may  appoint  in  writing  over  his  signature  not  more  than 
one  representative  for  each  place  of  voting  in  such  wards 
who  shall  have  the  right  to  act  as  challenger  and  watcher 
for  such  candidate  at  any  election  at  which  his  name  is 
being  voted  on.  Such  challenger  and  watcher  shall  have 
the  same  power  and  privileges  as  a  challenger  and  watcher 
under  the  election  laws  of  this  state  applicable  to  Chi- 
cago. No  political  party  shall  have  the  right  to  keej) 
any  challenger  or  watcher  at  any  polling  place  at  any  elec- 
tion for  alderman  unless  candidates  for  some  office  other 
than  that  of  alderman  are  to  be  voted  for  at  the  same 
time. 

^  9.  Certificate  of  election — issued  after  supplemen- 
tary election.]  No  certificate  of  election  shall  issue  to  an 
alderman  elected  at  any  such  quadrennial  election  until 
after  the  time  fixed  herein  for  the  supplementary  elec- 
tions following  such  quadrennial  election. 

<§>10.  Election  laws  apply  where  consistent  here- 
with.] All  laws  in  force  in  the  city  of  Chicago  gov- 
erning elections  for  municipal  offices  or  applicable  thereto 
and  not  inconsistent  with  the  provisions  of  this  Act  shall 
apply  to  and  govern  all  quadrennial  elections,  special 
elections,  and  supplementary  elections  held  hereunder. 

Part  Five. 

concerning  the  recall  and  removal  of  aldermen. 

Section  1.  Aldermen  subject  to  recall,]  Every  al- 
derman elected  at  or  subsequent  to  the  first  quadrennial 
election  for  aldeiTnen  under  the  provisions  of  this  Act 
shall  be  subject  to  removal  from  office  by  the  legal  voters 
qualified  to  vote  for  a  successor  to  such  alderman;  Pro- 


City  Manager  Plan  for  Chicago  37 

vided,  that  no  alderman  shall  bo  subject  to  removal  within 
one  year  after  he  takes  office  or  in  case  of  an  alderman 
re-elected  in  a  recall  election  within  one  year  after  that 
election. 

§2.  Procedure  to  effect  removal — form  of  petition.] 
The  procedure  to  effect  such  removal  shall  be  as  follows : 
A  petition,  demanding  that  the  question  of  removing  such 
alderman  be  submitted  to  the  legal  voters  qualified  to 
vote  for  his  successor,  shall  be  filed  with  the  city  clerk. 
Such  petition  shall  contain  a  general  statement  in  not 
more  than  200  words  of  the  ground  upon  which  the  re- 
moval is  sought,  and  shall  be  signed  by  such  qualified 
voters  equal  in  number  to  not  less  than  25  per  cent  of  the 
voters  of  the  ward  voting  at  the  last  general  election  for 
alderman.  In  all  other  respects  such  petition  shall  con- 
form to  the  requirements  of  the  election  and  ballot  laws  in 
force  in  the  city  of  Chicago  relating  to  petitions  for  the 
nomination  of  independent  candidates  for  public  office 
except  in  so  far  as  such  requirements  are  inconsistent 
with  the  provisions  hereof, 

^3.  Petition — proceedings  on  filing  of — election  or- 
dered BY  council — election  AUTHORITIES  NOTIFIED.]    UpOU 

the  filing  of  such  a  petition  with  the  city  clerk,  he  shall 
at  once  transmit  the  same  to  the  city  council.  Thereupon 
the  city  council  shall  promptly  by  ordinance  order  and 
fix  the  date  for  holding  a  recall  election  in  the  ward 
represented  by  the  alderman  sought  to  be  recalled.  Such 
election  shall  be  not  less  than  30  days  nor  more  than  45 
days  from  and  after  the  passage  of  such  ordinance.  The 
city  clerk,  upon  the  passage  of  such  ordinance,  shall 
transmit  a  certified  copy  thereof  to  the  board  of  election 
commissioners  of  the  city  of  Chicago  and  said  election 
commissioners  shall  proceed  to  hold  an  election  at  the 
time  fixed  in  such  ordinance. 


38  Chicago  Bureau  of  Public  Efficiency 

§4.  Nominations  of  candidates  for  alderman  at  re- 
call ELECTION,]  Nominations  of  candidates  for  alder- 
man at  any  such  recall  election  shall  be  made  in  the  man- 
ner provided  for  in  this  Act  for  nominating  candidates 
at  general  or  special  elections  for  aldermen;  Provided, 
that  petitions  for  nomination  may  be  filed  not  less  than 
15  days  prior  to  the  date  of  holding  such  recall  election. 
The  alderman  sought  to  be  removed  shall  not  be  required 
to  file  any  petition  but  shall  be  a  candidate  unless  he 
resigns  as  hereinafter  provided, 

§5.  Ballots — proposition  submitted — names  of  can- 
didates.] At  the  top  of  the  official  ballot  prepared  for 
any  such  recall  election  shall  be  placed  a  proposition  in 
substantially  the  following  form: 


Shall    be 

YES 

removed   from  the  office  of  Alderman 
from  the Ward? 

NO 

Below  said  proposition  shall  be  printed  the  caption  and 
direction  to  voters  as  follows: 

**  Candidates  for  alderman  to  succeed  Alderman " 

''(Vote  for  one.)" 

Immediately  under  this  caption  shall  be  placed  the 
name  of  the  alderman  sought  to  be  removed.  Below  such 
name  the  names  of  the  candidates  nominated  as  afore- 
said shall  be  arranged  in  a  vertical  column  in  the  manner 
provided  for  by  this  Act  for  the  arrangement  of  the 
names  of  candidates  for  aldermen  on  the  ballots  pre- 
pared for  general  elections  for  aldermen.  The  name  of 
the  alderman  sought  to  be  removed  shall  be  separated 
from  the  second  name  in  the  list  of  candidates  in  each 
series  of  ballots  by  twice  the  amount  of  space  that  sep- 


City  Manager  Plan  for  Chicago  39 

arates  any  other  two  successive  names  in  such  list.  If  the 
alderman  sought  to  be  removed  resigns  within  five  days 
after  the  passage  of  the  ordinance  ordering  and  fixing 
the  date  for  a  recall  election  as  aforesaid,  then  neither 
the  proposition  aforesaid  nor  the  name  of  such  alderman 
shall  be  placed  on  the  ballot  at  such  recall  election. 

^6.  Ballots — manner  of  counting — supplementary 
ELECTION.]  Each  voter  shall  be  entitled  to  vote  on  the 
proposition  submitted  on  such  ballot  and  for  one  candi- 
date for  alderman.  If  a  majority  of  the  votes  cast  on 
the  proposition  submitted  on  such  ballot  are  against  the 
removal  of  the  alderman  he  shall  not  be  removed.  If  a 
majority  thereof  are  for  the  removal  of  such  alderman, 
the  office  shall  thereupon  be  and  become  vacant  unless 
the  alderman  sought  to  be  removed  shall  have  received  a 
majority  of  the  votes  cast  for  candidates  for  alderman, 
in  which  case  he  shall  be  declared  re-elected.  If  any 
other  candidate  receives  a  majority  of  the  votes  cast  for 
alderman,  such  candidate  shall  be  declared  elected  to  suc- 
ceed the  alderman  removed  for  the  unexpired  terra  of  the 
alderman  so  removed.  If  no  candidate  receives  a  ma- 
jority of  the  votes  cast  for  alderman,  a  supplementary  re- 
call election  shall  be  held  three  weeks  after  the  date  of 
such  recall  election.  At  such  supplementary  recall  elec- 
tion, the  names  of  the  candidates  receiving  the  highest 
and  second  highest  numbers  of  votes  for  alderman  at  such 
recall  election,  and  no  others,  shall  be  placed  on  the  ballot, 
and  the  ballots  shall  be  arranged  in  the  manner  provided 
by  this  Act  for  the  arrangement  of  names  on  ballots  pre- 
pared for  general  elections  for  aldermen.  The  candidate 
receiving  the  highest  number  of  votes  cast  for  alderman 
at  such  supplementary  recall  election  shall  be  declared 
elected  to  succeed  the  alderman  removed  at  the  recall  elec- 


40  Chicago  Bureau  of  Public  Efficiency 

tion  and  to  serve  during  the  unexpired  term  of  the  alder- 
man so  removed. 

§7.  Eeimbursement  of  alderman  retained  in  office 
AT  RECALL  ELECTION.]  If  any  alderman  is  retained  in  ofifice 
as  a  result  of  any  recall  election,  he  shall  be  entitled  to 
receive  $500  out  of  the  city  treasury  to  reimburse  him 
for  his  expenses  in  and  about  such  recall  election. 

"§8.  Recall  and  supplementary  recall  elections 
DEEMED  SPECIAL  ELECTIONS.]  Evcry  such  recall  election 
and  supplementary  recall  election  shall  be  deemed  a  spe- 
cial election  under  the  election  and  ballot  laws  applicable 
to  the  city  of  Chicago,  and  shall  be  governed  thereby 
except  in  so  far  as  such  laws  are  inconsistent  with  the 
provisions  of  this  Act. 

Part  Six. 

concerning  the  redistricting  of  the  city  into  wards. 

Section  1.  City  to  have  thirty-five  wards.]  The 
city  of  Chicago  shall  be  divided  into  thirty-five  wards. 
In  the  formation  of  wards  the  population  of  each  shall 
be  as  nearly  equal  as  practicable  and  each  shall  be 
composed  of  contiguous  and  compact  territory. 

<§  2.  Additional  territory  to  be  annexed  to  existing 
wards.]  Whenever  territorj^  is  annexed  to  the  city,  the 
city  council  shall  by  ordinance  declare  it  a  part  of  the 
ward  or  wards  which  it  adjoins;  Provided,  that  at  any 
time  after  such  territory  is  annexed  the  city  council  may 
provide  for  the  redistricting  of  the  city  in  accordance 
with  the  provisions  of  this  Act. 

§3.  City  to  be  redistricted  after  adoption  of  this 
act.]  Within  three  months  after  the  adoption  of  this 
Act  by  the  voters  it  shall  be  the  duty  of  the  city  council 


City  Manager  Plan  for  Chicago  41 

to  pass  an  ordinance  redistricting  the  city  into  thirty-five 
wards  in  accordance  with  the  provisions  of  this  Act. 
Such  redistricting  of  the  city  shall  apply  to  the  election 
of  aldermen  at  the  first  quadrennial  election  provided 
for  in  this  Act  and  thereafter,  but  shall  not  apply  to  any 
election  of  aldermen  prior  to  such  first  quadrennial  elec- 
tion. 

%4i.    When  bedistbictino  obdinance  takes  effect — 

SUBSTITUTE   OBDINANCE   MAY   BE   SUBMITTED.]       No   SUCh   rC- 

districting  ordinance  shall  take  effect  until  the  expiration 
of  15  days  after  its  passage.  If  within  such  15  days  one- 
fifth  or  more  of  the  aldermen  elected,  who  did  not  vote  to 
pass  such  redistricting  ordinance,  file  with  the  city  clerk  a 
proposed  substitute  ordinance  redistricting  the  city  in  ac- 
cordance with  the  provisions  of  this  Act  together  with  a 
petition  signed  by  them  demanding  that  the  (luestion  of  the 
adoption  of  the  redistricting  ordinance  passed  by  the  city 
council,  together  with  the  question  of  the  adoption  of  such 
substitute  ordinance,  be  submitted  to  the  voters,  then  such 
redistricting  ordinance  passed  by  the  city  council  shall 
not  go  into  effect  until  the  question  of  its  adoption  shall 
have  been  submitted  to  a  popular  vote;  Provided,  that 
no  alderman  shall  have  the  right  to  sign  more  than  one 
such  petition.  Upon  the  expiration  of  such  15  days  the 
city  clerk  shall  promptly  certify  to  the  board  of  election 
commissioners  of  the  city  of  Chicago  the  ordinance 
passed  by  the  city  council  and  such  substitute  ordinance 
or  ordinances  and  petition  or  petitions,  and  it  shall  there- 
upon be  the  duty  of  said  board  of  election  commissioners 
to  submit  the  ordinances  so  certified  to  a  popular  vote  at 
the  next  general,  municipal,  or  special  election  in  and  for 
the  entire  city  to  be  held  not  less  than  40  days  after  the 
passage  of  such  redistricting  ordinance  by  the  city 
council. 


42  Chicago  Bureau  of  Public  Efficiency 

^5.      FaILUEE    of    council,    to    act ONE-FIFTH    OF    THE 

ALDERMEN  MAY  SUBMIT  REDISTRICTING  ORDINANCE.]      If  the 

city  council  shall  fail  at  any  time  to  pass  a  redistricting 
ordinance  as  required  herein,  one-fifth  or  more  of  the 
aldermen  elected  shall  have  the  right  to  file  with  the 
city  clerk,  not  less  than  40  days  before  the  date  of  hold- 
ing any  general,  municipal,  or  special  election  in  and 
for  the  entire  city,  an  ordinance  redistricting  the  city 
in  accordance  with  the  provisions  of  this  Act,  together 
with  a  petition  signed  by  them  demanding  that  such 
ordinance  be  submitted  to  the  legal  voters  at  the  next 
general,  municipal,  or  special  election  in  and  for  the  en- 
tire city  to  be  held  not  less  than  40  days  after  the 
filing  of  such  ordinance  and  petition;  Provided,  that 
no  alderman  shall  have  the  right  to  sign  more  than  one 
such  petition.  Upon  the  expiration  of  the  time  for  filing 
any  such  ordinance  the  city  clerk  shall  promptly  certify 
to  the  board  of  election  commissioners  of  the  city  of  Chi- 
cago any  ordinance  or  ordinances,  together  with  any  pe- 
tition or  petitions,  so  filed  and  thereupon  it  shall  be  the 
duty  of  said  board  of  election  commissioners  to  submit 
such  ordinance  or  ordinances  to  a  popular  vote  at  the 
election  specified  in  such  petition  or  petitions;  Provided, 
that  if,  after  the  filing  of  any  such  ordinance  and  peti- 
tion and  not  less  than  40  days  prior  to  such  election,  the 
city  council  shall  pass  an  ordinance  redistricting  the  city, 
then  the  question  of  the  adoption  of  any  ordinance  or  or- 
dinances filed  with  the  city  clerk  in  accordance  with  the 
provisions  of  this  section  shall  not  be  submitted  to  a 
popular  vote. 

^6.  Redistricting  ordinance  submitted — form  op 
BALLOT.]  If  the  question  of  the  adoption  of  one  of  two 
or  more  redistricting  ordinances  is  submitted  to  the  vot- 
ers at  any  election,  the  ballots  used  for  the  submission 


City  Manager  Plan  for  Chicago 


43 


of  such  propositions  shall,  in  addition  to  the  other  re- 
quirements of  law,  conform  substantially  to  the  follow- 
ing requirements : 

(1)     Above  the  propositions  submitted  the  following 
words  shall  be  printed  in  capital  letters : 


"propositions  for  the  redistricting  of  the  city  of 
chicago  into  35  wards." 

(2)  Immediately  below  said  words  shall  be  printed  in 
small  letters  the  direction  to  voters — 

"Vote  for  One." 

(3)  Following  thereupon  shall  be  printed  each  propo- 
sition to  be  voted  upon  in  substantially  the  following 
form: 


For  the  adoption  of  an  ordinance  for  the 
redistricting  of  the  city  of  Chicago  (here 
insert  "passed  by  the  city  council"  or 
"proposed  by  Aldermen  [here  insert 
names  of  the  Aldermen  signing  peti- 
tion]" as  the  case  may  require.) 


For  the  adoption  of  an  ordinance  for  the 
redistricting  of  the  city  of  Chicago  pro- 
posed by  Aldermen  (here  insert  names 
of  the  Aldermen  signing  the  petition.) 


Whenever  the  question  of  the  adoption  of  but  one  re- 
districting  ordinance  shall  be  submitted  to  the  voters,  the 
form  of  the  ballot  shall  be  substantially  as  follows : 


Shall  the  ordinance  proposed  by  Aldermen 
(here  insert  the  names  of  the  Aldermen 
signing  the  petition)   be  adopted? 


YES 


NO 


(4) 
type. 


All  the  propositions  shall  be  printed  in  uniform 


44  Chicago  Bureau  of  Public  Efficiency 

§  7.  ReDISTRICTING  ordinance  submitted WHEN  AP- 
PROVED AND  IN  EFFECT.]  If  the  quGstion  of  the  adoption 
of  one  of  two  or  more  redistricting  ordinances  is  sub- 
mitted to  the  voters  at  any  election,  the  ordinance  for 
which  the  highest  number  of  votes  is  cast  shall  be  deemed 
approved  and  shall  thereupon  be  in  force  and  effect.  If 
the  question  of  the  adoption  of  but  one  such  ordinance  is 
submitted  at  any  election  and  a  majority  of  the  votes 
cast  thereon  are  for  the  adoption  of  such  ordinance,  it 
shall  thereupon  be  in  force  and  effect;  otherwise  such 
ordinance  shall  not  go  into  effect. 

<§.8.  Election  and  ballot  laws  to  apply  where  con- 
sistent HEREWITH.]  All  election  and  ballot  laws  in  force 
in  the  city  of  Chicago  governing  the  submission  of  propo- 
sitions to  a  popular  vote  or  applicable  thereto  and  not 
inconsistent  with  the  provisions  of  this  Act  shall  apply 
to  and  govern  the  submission  of  any  propositions  herein 
provided  for. 

§9.  Redistricting  in  1931  and  decennially  there- 
after.] On  or  before  the  first  day  of  December,  1931, 
and  every  ten  years  thereafter,  the  city  council  shall  by 
ordinance  redistrict  the  city  on  the  basis  of  the  national 
census  of  the  preceding  year.  All  provisions  of  this  Act, 
relating  to  redistricting  of  the  city  immediately  follow- 
ing the  adoption  of  this  Act,  including  the  provisions  for 
the  filing  and  submission  of  substitute  or  other  redis- 
tricting ordinances,  shall  apply  with  equal  force  and 
effect  to  the  redistricting  of  the  city  in  1931  and  decen- 
nially thereafter. 


City  Manager  Plan  for  Chicago  45 

Part  Seven. 

concerning  the  adoption  of  this  act. 

Section  1.  Act  to  be  submitted  to  popular  vote.] 
This  Act  shall  not  be  in  force  in  the  city  of  Chicago  until 
the  question  of  its  adoption  shall  first  have  been  submit- 
ted to  the  legal  voters  of  the  city  of  Chicago  and  ap- 
proved by  a  majority  of  those  voting  thereon. 

The  question  of  the  adoption  of  this  Act  by  the  city  of 
Chicago  shall  be  submitted  to  such  legal  voters  at  the 
first  general,  municipal,  or  special  election  in  and  for  the 
entire  city  to  be  held  not  less  than  60  days  next  after 
the  passage  of  this  Act. 

If  this  Act  shall  fail  to  be  adopted  at  the  election 
aforesaid  by  a  majority  of  the  legal  voters  of  the  city 
of  Chicago  voting  thereon,  the  city  council  of  the  city 
of  Chicago  may  by  ordinance  direct  that  the  question  of 
the  adoption  of  this  Act  again  be  submitted  to  such  legal 
voters  at  any  general,  municipal,  or  special  election  in 
and  for  the  entire  city  to  be  held  not  less  than  thirty  days 
from  and  after  the  passage  of  such  ordinance,  and  not 
less  than  fifteen  months  prior  to  the  expiration  of  the 
term  of  the  mayor  in  office  at  the  time  of  the  passage  of 
such  ordinance.  The  city  clerk  of  the  city  of  Chicago 
shall  promptly  certify  the  passage  of  such  ordinance  to 
the  board  of  election  commissioners  of  the  city  of  Chi- 
cago and  it  shall  thereupon  be  the  duty  of  said  board  of 
election  commissioners  to  submit  the  question  of  the  adop- 
tion of  this  Act  to  such  legal  voters  at  such  election. 

If  this  Act  shall  fail  to  be  adopted  at  the  election 
aforesaid  by  a  majority  of  the  legal  voters  voting  there- 
on, the  question  of  the  adoption  of  this  Act  may  also 
again  be  submitted  to  the  legal  voters  of  the  city  of 


46  Chicago  Bureau  of  Public  Efficiency 

Chicago,  at  any  general,  municipal,  or  special  election  in 
and  for  the  entire  city  to  be  held  not  less  than  forty  days 
from  and  after  the  filing  of  the  petition  hereinafter  pro- 
vided for  and  not  less  than  fifteen  months  prior  to  the 
expiration  of  the  term  of  the  mayor  in  ofl&ce  at  the  time 
of  filing  such  petition,  in  the  following  manner:  A  peti- 
tion signed  by  legal  voters  of  the  city  equal  in  number  to 
at  least  five  per  cent  of  the  legal  voters  of  the  city  voting 
at  the  last  preceding  election  for  mayor,  demanding  the 
submission  of  the  question  of  the  adoption  of  this  Act, 
may  be  filed  with  said  board  of  election  commissioners 
and  it  shall  thereupon  be  the  duty  of  said  board  of  elec- 
tion commissioners  to  submit  the  question  of  the  adoption 
of  this  Act  to  such  legal  voters  at  the  election  specified 
in  said  petition. 

If  this  Act  shall  fail  to  be  adopted,  at  any  time  at 
which  it  is  submitted  under  the  requirements  of  this 
section,  by  a  majority  of  the  legal  voters  of  the  city  of 
Chicago  voting  thereon,  then  it  may  be  resubmitted  from 
time  to  time  by  ordinance  or  petition  as  above  pro- 
vided. 

The  said  board  of  election  commissioners  shall  give 
notice  of  any  election  provided  for  in  this  section  by  pub- 
lishing a  notice  thereof,  not  less  than  twenty  days  prior 
to  such  election,  in  at  least  one  newspaper  of  general  cir- 
culation published  in  the  city  of  Chicago. 

§  2.  Form  of  ballot — adoption.]  The  ballot  to  be  used 
at  such  election  shall  be  in  substantially  the  following 
form: 


City  Manager  Playi  for  Chicago 


47 


For  the  adoption  of  an  Act  to  amend  an 
Act  entitled,  "An  Act  to  provide  for  the 
incorporation  of  cities  and  villages,"  so  as 
to  reorganize  the  municipal  government 
of  Chicago  by  providing,  among  other 
things,  for  the  election  of  the  mayor 
by  the  city  council,  and  for  the  non- 
partisan election  of  aldermen;  by  fix- 
ing the  number  of  aldermen  at  35,  one 
from  each  ward;  and  by  extending  the 
term  of  aldermen  to  four  years  subject 
to   popular  recall. 


YES 


NO 


If  a  majority  of  siicli  legal  voters  of  the  city  of  Chi- 
cago, voting  thereon  at  any  such  election,  shall  vote  for 
the  adoption  of  this  Act,  it  shall  thereby  and  thereupon  be 
adopted  and  sections  numbered  1  and  from  8  to  22,  both 
inclusive,  of  Part  Two  hereof  shall  be  in  force  and  effect 
and  become  operative  in  the  city  of  Chicago  at  and  after 
the  expiration  of  the  term  of  the  mayor  in  oflBce  when  this 
Act  is  adopted  by  the  voters ;  the  sections  numbered  from 
9  to  17,  both  inclusive,  of  Part  Three  hereof  shall  be  in 
force  and  effect  and  become  operative  in  the  city  of  Chi- 
cago at  and  after  the  first  quadrennial  election  of  alder- 
men herein  provided  for  in  Part  Four;  and  the  remain- 
ing sections  of  this  Act  shall  be  in  force  and  effect  and 
become  operative  in  the  city  of  Chicago  from  and  after 
the  time  or  times  therein  respectively  indicated. 


APPENDIX  A. 


EXTRACTS  FROM  REPORT  OF  THE  CHICAGO  BUREAU  OF  PUB- 
LIC EFFICIENCY  ON  UNIFICATION  OF  LOCAL  GOVERN- 
MENTS IN  CHICAGO,  PUBLISHED  IN  JANUARY,  1917,  SET- 
TING FORTH  THE  DESIRABILITY  OF  THE  CITY  MANAGER 
PLAN   OF  GOVERNMENT    FOR   CHICAGO. 


Mounting  taxes,  without  corresponding  increase  in  the  volume  and 
quality  of  public  service,  continually  embarrassed  public  finances, 
widespread  dissatisfaction  with  local  administration,  and  frequent 
clashes  of  the  different  authorities  with  one  another,  force  this  com- 
munity to  serious  consideration  of  the  question  of  the  fundamental 
reorganization  of  local  government. 

The  program  for  the  promotion  of  eflflclency  and  economy  should 
be  three-fold  in  nature: 

1.  The  effecting  of  such  improvements  in  service  and  such  econo- 
mies as  are  possible  under  existing  laws  and  constitutional  provisions. 

2.  The  passage  by  the  Illinois  Legislature  of  laws  for  such  reor- 
ganization in  the  interest  of  efficiency  and  economy  as  is  possible  under 
the  present  Constitution. 

3.  Complete  unification  of  all  the  local  governments  in  Chicago, 
which  will  be  possible  only  after  extensive  modifications  of  the  Con- 
stitution of  the  State. 

The  second  and  third  features  of  this  three-fold  program  are  the 
ones  to  which  this  report  is  primarily  devoted. 

City  Government  In  the  United  States. 

Before  considering  the  specific  problem  which  confronts  Chicago, 
it  is  necessary,  in  order  better  to  understand  that  problem,  to  take  a 
preliminary  broad  survey  of  the  history  of  the  organization  of  govern- 
ment in  this  country — national,  state,  and  local. 

City  government  in  the  United  States  is  a  reflection  in  large  meas- 
ure of  the  form  of  the  national  government.  In  the  copying  process, 
however,  the  features  of  the  national  government  that  make  for 
IneflSciency  have  been  magnified  in  state  laws  and  charters  applicable 
to  municipalities. 

In  the  view  of  the  founders  of  the  American  republic,  government 
was  something  to  be  restrained  and  checked.    Such  interference  with 


50  Chicago  Bureau  of  Public  Efficiency 

liberty  as  they  had  experienced  had  been  at  the  hands  of  agencies  of 
government.  The  idea  that  government  might  become  too  weak  to 
protect  the  liberties  of  the  people  against  individuals  or  combinations 
of  powerful  private  interests,  or  to  function  efficiently  in  the  perform- 
ance of  public  duties,  did  not  disturb  the  framers  of  the  American 
Constitution.  Their  deliberate  aim  was  to  tie  the  hands  of  government 
through  division  of  powers  and  a  system  of  checks  and  balances,  so 
that  it  could  not  easily  become  tyrannical.  The  framers  of  the  Consti- 
tution were  powerfully  influenced  in  their  thought  and  work  by  the 
writings  of  18th  century  political  philosophers,  like  Montesquieu — 
theorists  and  doctrinaires  with  little  practical  experience  in  affairs  of 
state.  The  plan  of  government  as  thus  devised  and  developed  in 
practice  is  in  many  respects  unique  in  the  world's  history  and  has 
few  counterparts,  except  as  it  has  been  more  or  less  directly  copied 
by  other  republics  of  the  western  hemisphere,  which  naturally  looked 
to  the  United  States  as  the  model  of  republican  institutions. 

States  and  cities,  which  had  had  quite  different  forms  of  govern- 
ment before,  soon  imitated  the  national  model  with  its  divided  powers 
and  checks  and  balances.  The  diffusion  of  authority  was  carried  much 
further,  however,  so  that  today  the  government  of  the  United  States 
stands — in  comparison  with  most  state  and  city  governments — as  an 
example  of  simplicity  and  centralization  of  authority.  In  form  the 
government  of  the  United  States  is  today  substantially  what  it  was  a 
hundred  years  ago.  It  has  grown  in  size  and  in  volume  of  activities. 
The  divisions  remain,  however,  as  they  were  at  the  beginning — legisla- 
tive, executive,  and  judicial — the  legislature  sub-divided  into  the  two 
houses  of  Congress,  with  the  veto  power  In  the  President. 

The  executive  power  has  not  been  weakened  by  the  creation  of  a 
large  number  of  separately  elected  administrative  officials,  as  is  the 
case  with  the  states  and  the  cities.  Not  only  have  local  communities 
the  divided  powers  and  the  checks  and  balances  of  the  national  gov- 
ernment, but  they  have  many  other  features  that  make  for  friction 
and  inefficiency.  There  are  overlapping  governments,  independent  of 
one  another.  There  are  boards  and  commissions  of  various  sorts 
exercising  a  variety  of  powers,  usually  with  no  single  correlating 
agency  to  bring  about  harmonious  action  among  the  various  bodies 
for  the  promotion  of  the  public  welfare.  In  addition  there  is  the  mul- 
tiplicity of  independent  elective  officials — legislative,  administrative, 
and  judicial.  There  is  also  an  enormous  amount  of  judicial  interference 
with  local  administration. 

Originally  American  cities  had  simple  forms  of  government,  which 
were  modified  after  the  adoption  of  the  Federal  Constitution  to  con- 
form to  the  national  model.  New  York  affords  an  extreme  illustration 
of  the  changes  that  have  taken  place.  From  the  time  of  the  Dongan 
charter  of  1686  down  to  1830,  New  York  had  a  form  of  municipal 
government  much  like  that  of  a  British  city  of  today.  Practically  all 
the  power  was  centered  In  the  city  council,  which  organized  and  con- 


City  Manager  Plan  for  Chicago  51 

trolled  all  the  executive  departments  and  chose  the  oflScers  to  fill  them. 
For  a  long  time,  it  is  true,  the  mayor  was  appointed  by  the  governor 
of  the  state,  but  his  duties  were  mainly  honorary,  like  those  of  the 
mayor  of  a  British  city.  In  the  course  of  time,  however,  the  selection 
of  the  mayor  was  left  to  the  council. 

It  was  in  1830  that  the  movement  then  In  evidence  throughout  the 
country  to  make  city  government  conform  to  the  national  model 
came  to  a  head  in  New  York  City.  A  charter  convention  assembled  in 
1829  had  formulated  charter  changes  that  were  enacted  into  law  by  the 
Legislature  of  1830.  The  plan  provided  for  a  two-chamber  council,  an 
elective  mayor  with  a  veto  power  and  other  checks  and  balances. 

The  interpretative  comments  on  this  plan  by  E.  Dana  Durand,  in 
his  History  of  the  Finances  of  New  York  City,  are  full  of  significance. 
Mr.  Durand  said: 

"The  principles  expressed  by  the  Convention  of  1829  are  of 
great  interest.  Most  stress  was  perhaps  laid  upon  the  separation 
of  the  council  into  two  boards,  'for  the  same  reason  which  has 
dictated  a  similar  division  of  power  into  two  branches,  each  check- 
ing and  controlling  the  other,  in  our  general  government."  Most 
of  the  delegates  favored  also  a  longer  term  for  the  upper  house, 
aiming  to  make  it  approximate  in  nature  to  the  United  States 
Senate.  A  provision  excluding  the  mayor  henceforth  from  the 
council  and  giving  him  the  veto  power  was  designed  to  furnish  an 
additional  check.  The  convention  proposed  also  that  the  mayor 
should  thereafter  be  elected  by  the  people  instead  of  by  the 
council,  but  as  this  required  a  constitutional  amendment,  the 
change  was  not  effected  until  1834.  These  changes  were  intended 
also  to  aid  in  the  second  great  reform  that  was  advocated, — the 
division  of  executive  from  legislative  power. 

•  *  • 

"From  all  this  it  is  perfectly  clear  that  the  ideas  of  the  worthy 
delegates  to  the  Convention  of  1829  were  all  moulded  on  the 
conventional  example  of  the  federal  and  state  governments.  The 
two  mutually  restraining  houses,  the  veto  by  the  mayor,  the  sep- 
aration of  executive  and  legislative  functions,  the  appropriation 
system, — all  were  copied  closely.  The  question  whether  the  dif- 
ferent character  of  municipal  affairs  might  not  justify  considerable 
differences  in  the  form  of  government  was  not  raised.  It  was 
apparently  not  even  because  specially  grievous  fault  was  found  in 
the  actual  working  of  the  existing  system, — for  the  charges  against 
it,  after  all,  are  neither  bitter  nor  specific,  but  far  more  on 
theoretical  grounds,  that  these  changes  were  urged.  Be  this  as  it 
may,  it  is  certain  that  the  objects  sought  by  the  charter  of  1830 
were  almost  entirely  frustrated  In  practice.  The  utterances  of 
the  convention  are  chiefiy  interesting  as  showing  how  early  and 
how  strong  was  the  movement  towards  following  national  prece- 
dent." 

Thus  was  inaugurated  in  New  York  City  the  movement  away  from 
the  simple  council  form  of  government  which  has  gone  on  until  now  the 
council  of  that  city  is  a  body  of  small  importance.  The  council  is 
retained  in  name  as  a  concession  to  democratic  tradition,  but  the 
real  powers  of  local  government  are  scattered  among  other  agencies — 
the  mayor,  the  board  of  estimate  and  apportionment,  and  other  boards. 


52  Chicago  Bureau  of  Public  Eficiency 

both  state  and  local.     The  state  legislature  interferes  directly  with 
many  matters  of  local  administration. 

Taking  account  only  of  the  City  government  proper,  Chicago  has 
drifted  less  far  away  from  the  original  simple  council  form  of  gov- 
ernment than  have  most  other  American  cities.  Disregarding  the 
Municipal  Court  and  its  attaches,  the  only  elective  City  officials  are 
the  Mayor  and  Aldermen  and  the  City  Clerk  and  City  Treasurer.  The 
Mayor  has  the  veto  power  and  makes  the  appointments — very  impor- 
tant powers.  But  the  Council  has  larger  powers  than  have  the  legis- 
lative bodies  of  most  American  cities.  An  important  advantage  of 
New  York  over  Chicago  is  that  the  election  laws  applicable  to  the 
former  city  afford  much  better  opportunities  for  successful  fusion 
movements  along  non-partisan  lines  than  are  open  here. 

One  great  difficulty  with  the  Chicago  situation  is  that  there  are 
many  local  governing  bodies  aside  from  the  City,  as  was  shown  by 
the  report  of  the  Chicago  Bureau  of  Public  Efficiency  entitled  "The 
Nineteen  Local  Governments  in  Chicago" — now  twenty-two. 

Somewhat  later  than  1830  there  developed  in  American  states  and 
local  communities  the  tendency  to  elect  nearly  all  administrative  and 
judicial  officers,  with  the  result  of  making  confusion  worse  confounded. 
Later  still  came  a  movement  to  vest  important  powers  of  government 
in  detached  boards  or  commissions,  subject  to  no  supervision  and 
therefore  essentially  irresponsible.  Park  boards  constitute  a  con- 
spicuous example. 

This  tendency  to  multiply  governmental  agencies  continued  un- 
abated until  about  1900,  when  there  set  in  a  movement  toward  the 
simplification  of  municipal  government.  This  movement,  at  first  rep- 
resented by  the  commission  form  and  later  by  the  city  manager  form 
of  city  charter,  has  since  made  considerable  progress,  especially  in 
the  smaller  cities  of  the  country. 

The  partisan  spoils  system  of  appointments  to  the  public  service 
early  found  its  way  into  national,  state,  and  local  politics.  The  effort 
to  combat  the  spoils  system  with  civil  service  enactments  has  had  its 
beneficial  results.  But  in  so  far  as  civil  service  regulations  are  arbi- 
trary and  inelastic,  they  operate  to  intensify  rigidity  and  irresponsi- 
bility in  government. 

The  fact  is  that  governmental  machinery  in  the  United  States — 
more  especially  state  and  local — is  clumsy  in  the  extreme,  and  not 
calculated  to  produce  efficiency.  Cities  having  the  commission  or  the 
city  manager  forms  of  government  constitute  the  principal  exceptions, 
and  even  in  such  cities  there  is  likely  to  be  confusion  due  to  the  fact 
that  all  the  local  activities  of  the  community  are  not  centered  in  the 
commission.  American  citizens  show  their  capacity  for  efficient  self 
government  in  the  way  in  which  they  function  in  crises,  and  in  the 
manner  in  which  they  execute  particular  projects  of  importance.  But 
in  ordinary  every-day  affairs  the  machinery  of  government  creaks  and 


City  Manager  Plan  for  Chicago  53 

produces  the  minimum  of  results  in  return  for  the  maximum  expendi- 
ture of  energy  and  money. 

The  best  of  citizens  cannot  secure  proper  results  in  government 
working  with  clumsy  machinery.  The  point  of  view  which  has  pre- 
vailed for  over  a  century,  but  which  of  late  has  become  subject  to 
modification,  must  be  reversed.  Instead  of  framing  constitutions  and 
laws  to  tie  the  hands  of  government,  we  must  devise  machinery  under 
which  things  can  be  done.  The  weakness  of  government  in  the  United 
States  is  most  manifest  in  the  cities  because  there  the  need  for 
affirmative  action  is  greatest,  and  the  restrictions  and  checks  and 
balances  are  the  most  numerous. 

The  best  results  in  local  government  are  not  to  be  had  from  a 
system  constructed  on  the  plan  of  division  of  powers  and  checks  and 
balances.  Efficiency  calls  for  the  mingling,  not  the  separation,  of 
legislative  and  administrative  powers.  The  executive  should  be  the 
agent  of  the  legislative  body  and  subject  to  its  direction  and  control. 
Checks  and  balances  give  rise  to  inaction  and  irresponsibility.  There 
should  be  provisions  to  insure  reasonable  deliberation,  but  some  single 
authority  should  possess  the  power  to  bring  things  to  pass,  and  should 
be  held  responsible  for  inaction  as  well  as  for  action.  Division  of 
power  and  diffusion  of  responsibility  too  often  mean  stagnation  and 
blocking  of  needed  public  improvements,  as  the  experience  of  Ameri- 
can cities  demonstrates. 

In  efficient  organizations — whether  governmental  or  business  In 
nature — the  delegated  power,  administrative  as  well  as  legislative,  is 
lodged  in  a  legislative  body  or  board  of  directors,  which  body  or  board 
administers  through  executive  agents  selected  and  controlled  by  It. 
The  executive  authority  In  Great  Britain,  for  example,  is  the  cabinet, 
headed  by  the  prime  minister,  which  holds  power  at  the  will  of  the 
majority  in  the  House  of  Commons.  In  British,  FYench,  German, 
Australian  and  most  other  well  governed  cities  of  the  world,  the 
people  choose  by  vote  only  the  members  of  the  city  council  and  that 
body  selects  and  controls  the  executive  agents.  American  business 
corporations  follow  the  same  practice.  The  stockholders  choose  boards 
of  directors,  and  those  boards  take  charge  of  all  matters  of  adminis- 
tration, including  the  selection  of  the  executive  officers.  The  usual 
practice  is  for  the  directors  to  designate  the  executive  head  and  to 
hold  him  responsible  for  the  selection  of  subordinates.  Thus  the 
method  of  American  business  corporations  Is  almost  precisely  that  of 
the  city  manager  form  of  government.  How  would  a  business  corpora- 
tion get  on  if  obliged  to  work  under  the  division  of  power  and  check- 
and-balance  methods  to  which  most  of  our  governments  are  subject? 

Reference  is  made  to  national  and  state  governments  for  the  pur- 
pose of  helping  to  understand  the  city  government  problem,  and  not 
with  the  view  of  offering  suggestions  for  changes  in  those  fields.  The 
national  government  Is  not  likely  soon  to  be  altered  radically  In  form. 

Change  In  state  governments  will  come  slowly  also.    It  is  slgnifl- 


54  Chicago  Bureau  of  Public  Efficiency 

cant,  however,  that  commission  government  for  states  has  been  pro- 
posed in  some  instances.  But  city  government  in  the  United  States 
might  almost  be  said  to  be  in  a  fluid  state,  so  great  and  so  numerous 
are  the  changes  constantly  under  way. 

In  fact,  far  too  much  of  the  energy  of  American  cities  is  consumed 
in  mere  charter  changes  which  avail  little.  For  example,  a  city  choos- 
ing its  councilmen  by  wards  will  change  to  the  system  of  election  at 
large,  and  vice  versa.  But  still  the  root  of  the  trouble  is  untouched. 
There  is  more  variety  in  city  government  in  the  United  States  than 
in  all  the  rest  of  the  world.  British  and  French  and  German  cities  are 
not  continually  tinkering  with  their  charters.  They  have  for  the  most 
part  simple  forms  of  government,  and  they  use  those  governments 
to  accomplish  things,  instead  of  wasting  time  in  the  modification  of 
structural  organization. 

With  the  exception  of  London  and  Paris,  the  forms  of  government 
of  which  are  affected  for  the  worse  from  the  fact  that  they  are  the 
capital  cities  of  their  countries,  there  is  fundamental  similarity 
throughout  Europe  and  Australia  in  plans  of  municipal  organization. 
Canada  was  the  same  until  cities  like  Toronto  and  Montreal  yielded  to 
the  subversive  influence  of  their  neighbor,  New  York  City,  and  sub- 
stituted for  their  simple  model  an  imitation  of  one  of  the  clumsiest 
pieces  of  governmental  mechanism  in  the  world. 

The  most  hopeful  sign  today  in  the  field  of  American  city  charter 
reform  Is  the  growth  in  popularity  of  the  city  manager  idea,  as  typified 
by  the  charter  of  Dayton,  Ohio.  That  charter  conforms  in  the  main 
to  the  plan  of  municipal  government  prevailing  as  a  rule  throughout 
the  world,  outside  the  United  States.  It  is  in  accord  with  the  plan  of 
organization  of  American  business  corporations,  noted  for  their  effi- 
ciency. The  National  Municipal  League,  at  its  annual  meeting  in  1915, 
held  at  Dayton,  approved  the  city  manager  plan  for  American  cities 
generally,  regardless  of  size.  For  larger  cities,  however,  it  was  pro- 
posed that  the  members  of  the  council  or  commission  be  more  than 
five  in  number,  and  that  they  be  chosen  from  districts,  rather  than  at 
large. 

The  City  Manager  Plan  for  Chicago. 

If  it  be  agreed  that  the  multitude  of  taxing  bodies  In  Chicago 
should  be  consolidated,  what  shall  be  the  form  of  the  reorganized  gov- 
ernment? 

The  Bureau  believes  that  consolidation  of  the  existing  governments 
of  Chicago  into  one  headed  by  a  city  manager  type  of  executive  would 
give  much  better  results  than  any  other  plan. 

The  application  of  the  city  manager  plan  to  Chicago  would  be 
easy,  provided  the  people  could  be  made  to  see  the  desirability  of  the 
change.  Make  the  Mayor  elective  by  the  City  Council  Instead  of  by 
popular  vote,  and  substitute  an  indefinite  tenure  for  the  present  fixed 
term,  and  Chicago  will  have  the  city  manager  plan  in  essence. 


City  Manager  Plan  for  Chicago  55 

Consolidation  might  be  effected,  to  be  sure,  under  a  form  of  gov- 
ernment with  an  elective  Mayor  and  City  Council,  such  as  now  exists 
In  Chicago.  But  It  would  be  much  better,  when  the  reorganization  Is 
attempted,  to  adopt  the  system  calculated  to  produce  the  best  results. 
For  a  generation  or  more  political  mayors  have  been  the  rule  in 
Chicago.  The  present  system  naturally  tends  to  produce  political 
executives.  Whereas,  under  Council  selection,  it  might  be  possible  to 
secure  an  executive  who  would  be  a  capable  administrator.  At  any 
rate,  the  control  would  be  centralized  in  one  responsible  body,  instead 
of  being  divided  between  the  Mayor  and  the  Council  as  it  Is  now.  The 
present  system  gives  rise  to  too  much  wrangling  and  friction.  Con- 
stant bickerings  between  the  Mayor  on  the  one  side  and  the  Council 
on  the  other  interfere  with  efBciency.  The  practical  way  out  of  the 
embarrassment  is  to  do  away  with  the  elective  Mayor  and  make  the 
executive  the  agent  of  the  Council.  In  that  way  popular  control  over 
government  would  really  be  strengthened.  The  power  of  the  people  is 
dissipated  and  weakened  when  delegated  power  is  divided  among 
different  independent  elective  authorities  instead  of  being  centralized 
in  one  responsible  body. 

Of  course,  there  should  be  provision  for  nonpartisan  elections, 
whatever  the  plan  of  the  consolidated  government  might  be.  Non- 
partisanship  is  necessary  to  make  any  plan  of  city  government  work 
satisfactorily.  Partisan  methods  of  nominating  and  electing  local 
oflaclals — forced  upon  Chicago  by  the  Illinois  Legislature — are  respon- 
sible for  much  of  the  existing  dissatisfaction  with  local  government  in 
this  community. 

•  •  • 

First  Steps  In  the  Unification  Program. 

The  first  step*  in  the  program  of  complete  uniflcafion  of  local  gov- 
ernments in  Chicago,  which  should  be  taken  by  the  Legislature  of 
Illinois  at  its  present  session,  is  to  prepare  for  the  necessary  modifica- 
tions of  the  Constitution,  broad  enough  to  accomplish  the  purpose  in 
view.  The  community  also  should  undertake  the  thorough  study  of 
the  difficult  problems  of  reorganization  involved,  to  which  this  report 
seeks  to  direct  attention,  to  the  end  that  legislative  changes  needed  to 
promote  efficiency  and  economy  may  be  instituted  speedily  and  intelli- 
gently, when  the  constitutional  barriers  shall  have  been  removed. 

Next,  the  Legislature  should  give  Chicago,  at  once,  a  modified  form 
of  the  city  manager  plan  of  government.  The  change  should  be  made 
operative  before  the  municipal  election  of  1919.  ♦  •  •  The  adoption 
of  this  plan  should  do  much  to  improve  administration  and  to  develop 
that  confidence  in  the  City  government  which  is  so  essential  to  the 
progress  of  the  movement  for  complete  unification. 


This  step  has  been  taken.  The  Legislature  at  its  last  session  adopted  the  reso- 
lution for  a  constitutional  convention  and  the  proposition  will  be  submitted  to  the 
people  of  Illinois  at  the  election  of  November,   1918. 


APPENDIX  B. 


Editorial  from  The  Economist  of  February  3,  1917. 

SiMPLE  GOVERNMENT. 

"Governmental  tendencies  in  this  country  are  In  the  direction  of 
simplicity,  which  means  concentration  of  power  and  responsibility  In 
few  hands.  This  is  illustrated  by  the  many  towns  that  have  adopted 
the  commission  form  of  government.  An  interesting  development  in 
the  same  line  was  that  brought  about  by  Lloyd  George  In  becoming 
premier  and  placing  the  United  Kingdom  in  the  hands  of  five  Indi- 
viduals. 'That  Is  the  Des  Moines  idea'  was  the  remark  of  one  who  was 
pleased  to  see  something  In  the  line  of  recent  American  fashions 
adopted  by  the  mother  country.  We  have  had  too  little  of  this  however. 
The  government  of  this  country  was  started  out  as  a  protest  against 
tyranny  and  accordingly  the  impulse  was  to  lodge  power  in  everybody 
all  at  once,  thus  weakening  It  and  creating  a  general  condition  of  Irre- 
sponsibility.   We  are  beginning  to  find  out  that  this  will  not  do. 

"Several  efforts  have  been  made  to  simplify  government  in  this 
city,  and  some  success  has  been  achieved,  notably  In  getting  rid  of 
certain  features  of  the  old  town  units,  but  we  are  still  loosely  organized. 
The  Chicago  Bureau  of  Public  Efficiency,  of  which  nine  highly  qualified 
citizens  are  trustees,  has  just  prepared  a  report  on  this  subject.  The 
thing  that  this  board  wishes  to  have  cured  is  'twenty-two  local  gov- 
ernments, no  central  control,  no  central  responsibility.'  It  is  estimated 
that  the  changes  proposed  would  immediately  save  $700,000  and  ulti- 
mately $3,000,000.  The  city  limits  would  be  extended  so  as  to  include 
the  Sanitary  District,  the  Drainage  Board  thus  being  abolished.  The 
City  Council  would  be  the  governing  body  and  would  elect  the  mayor. 
The  City  Council  however  would  be  reduced  In  membership  from 
seventy  to  thirty-five  aldermen,  who  would  have  a  term  of  four  years 
with  a  salary  of  $4,000.  These  aldermen  would  be  subject  to  recall.  It 
Is  proposed  too  that  all  the  courts  shall  be  consolidated  into  one  sys- 
tem. Also  certain  officials  now  elected  would  be  appointed,  such  as  city 
treasurer  and  city  clerk. 

"The  dominating  idea  of  the  report  is  excellent  and  it  will  unques- 
tionably have  to  be  adopted  some  time  if  Chicago  is  really  to  come  to 
its  own.  The  present  lack  of  system  and  unity  is  costing  us  dearly. 
The  task  laid  out  by  these  trustees,  Julius  Rosenwald,  Alfred  L.  Baker, 
Onward  Bates,  George  G.  Tunell,  Walter  L.  Fisher,  Victor  Elting,  Allen 
B.  Pond  and  Frank  I.  Moulton — with  Harris  S.  Keeler  as  director  of  the 
Bureau,  is  a  huge  one  Inasmuch  as  it  calls  for  city  limits  extending 
from  the  Indiana  line  to  the  Cook  County  boundary  line  on  the  north 


58  Chicago  Bureau  of  Public  Efflciency 

and  the  west,  taking  In  several  towns  which  might  not  wish  to  be  taken 
in. 

"The  report  of  the  Bureau  Is  educational.  One  must  say  with  regret 
that  that  is  about  all  any  of  these  reports  and  Investigations  have  been 
these  many  years  past.  A  great  deal  of  excellent  work  has  been  done 
by  commissions  and  private  individuals  In  investigating  abuses  and 
recommending  remedies,  and  nothing  has  come  of  it  all  except  a  little 
disturbance  of  the  sleep  of  our  people.  We  have  had  elaborate  reports 
on  smoke  prevention,  on  taxation,  on  various  social  evils,  and  here  we 
are  still.  The  connecting  link  between  this  report  and  actuality  should 
be  some  strong  and  highly  intelligent  lobbying  In  the  Legislature  to 
assure  the  passage  of  acts  which  will  enable  Chicago  to  undertake 
some  of  these  reforms.  Unless  strong  work  is  done  on  those  lines  this 
excellent  report  will  have  the  same  fate  as  all  the  rest." 


APPENDIX  C 


POPULATION  AND  NUMBER  OF  REGISTERED  VOTERS  OF  THE 
CITY  OF  CHICAGO.  BY  WARDS 


POPULATION  BY  WARDS  IN  1916  AND  1910- 
ALSO  INCREASE  OR  DECREASE 

,                   1                   1 

REGISTERED  VOTERS 
MARCH.  1917 

WMd 

Number 

PopuUtioo 
by  Ward* 
for  1916 
(based  od 
School 
Ceniui) 

PopuUtioD 
bv  Wwd. 
for  lUlO 
(Federml 
Cenaus) 

Increase 
1910-1016 

Decrease 
1910-1916 

Men 

WoiDen 

Total 

Number  of 

PrectoeU 

in  Each 

Ward 

Ward 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

21 

22 

23 

24 

25 

26 

27 

28 

29 

30 

31 

32 

33 

34 

35 

45,935 
69,217 
69,2-29 
66,030 
69,430 
81,626 
79,524 
69,248 
74,181 
66,953 
67,148 
65,419 
72,023 
67,724 
83,755 
64,234 
68,342 
67,804 
56,103 
68,870 
62,823 
69,962 
69,359 
66,884 
96,541 
82,428 

110,650 
69,272 

100,986 
63,439 
71,116 
93,780 
90,615 
88,323 
86,276 

60,014 
62,072 
62,716 
61,297 
61,966 
61,860 
64,983 
64,038 
62,629 
62,348 
63,440 
60,157 
60,988 
61,856 
66,647 
65,223 
70,099 
61,114 
63,756 
65,847 
64,070 
63,556 
64,477 
61,036 
59,440 
69,455 
62,153 
63,230 
60,853 
60,178 
63,228 
64,981 
64,948 
57.142 
60,451 

'  '6,513 

4,733 

7,402 

19,766 

14.541 

5,210 

11,552 

'  3,708 
5,262 

11,035 
5,868 

17,108 

'  4,882 

5,848 

36,101 

22.973 

48.497 

6,012 

40,133 

3.261 

7,888 

28,799 

25,667 

31,181 

25,825 

14,079 

2,855 

'  '6,395 

" " "  989 
1,757 
3,310 
7,653 
6,977 
1,247 
3.594 

1    11,116 

1    15,016 

!    15,585 

i      8,703 

1    10,620 

19,272 

21,329 

i    11,796 

1    12,515 

1     6,216 

i     7,641 

10,437 

17,156 

12,336 

14,611 

7,327 

6,465 

i    13,657 

1     6,458 

i     4,949 

13,442 

7,352 

15,420 

11,782 

25,348 

20,152 

25,338 

12,650 

15,418 

10,807 

15,545 

23,473 

1    22,710 

18,009 

21,053 

3,258 

9,425 

12,348 

4,859 

5,403 

14,911 

16,545 

6,966 

7,315 

3,198 

3,947 

5,837 

12,187 

7,532 

7,220 

3,600 

2,346 

6,438 

2,690 

2,304 

7,108 

3,168 

9,963 

5,800 

20,772 

12,175 

13,487 

6,925 

8,244 

6.291 

10,949 

17,065 

14,519 

9.232 

13,904 

14.374 
24.441 
27,933 
13,562 
16,023 
34,183 
37,874 
18,762 
19,830 

9,414 
11,588 
16,274 
29,343 
19,868 
21,731 
10,927 

7,811 
20,095 

9,148 

7,233 
20,550 
10,520 
25,383 
17,582 
46,120 
32,327 
38,825 
19,575 
23.662 
17.098 
26.494 
40.538 
37.229 
27.241 
34,957 

44 
74 
77 
41 
47 
88 
96 
56 
57 
27 
37 
47 
84 
60 
60 
33 
24 
62 
29 
23 
60 
34 
71 
61 

111 
86 

107 
69 
63 
49 
73 

113 
93 
77 
90 

1 

2 

3 

4 

6 

6 

7 

8 

9 

10 

11 

12 

13 

14 

16 

16 

17 

18 

19 

20 

21 

22 

23 

24 

26 

26 

27 

28 

29 

30 

31 

32 

33 

34 

35 

Total. .  . 

2,544,249 
2,192,350 

2,192,350 

62,639 
21 
14 

399,755 
47,856 

47,856 

1490,604 

297,931 

788,636 

2.203 

Increase 

Average 
Popula- 
tion   pel 
ward.  .. 
Wards 
b  e  1  0  n 
average 
Ward! 
above 
average 

'   351,899 

72,693 
23 
12 

351.899 

60 


Chicago  Bureau  of  Puhlic  Efficiency 


UNEQUAL  REPRESENTATION 


Tables  Showing  Inequality  of  Wards  in  Population  and  Registered  Voters— Five  Wards 
with  Ten  Aldermen  Have  About  the  Same  Population  and  a  Much  Larger  Regis- 
tered Vote  than  Eight  Other  Wards  with  Sixteen  Aldermen. 


Ward 

Population 

Registered  Voters 

Number 

1916 

1917 

Aldermen 

6 

81,626 

34,183 

2 

25 

95,541 

46,120 

2 

26 

82,428 

32,327 

2 

27 

110,650 

38,825 

2 

32 

93,780 

40,538 

2 

Total,  5  wards 

464,025 

191,993 

10 

Average  per  ward.  .  .  . 

92,805 

38,398 

Average  per  alderman. 

46,402 

19,199 

Ward 

Population 

Registered  Voters 

Number 

1916 

1917 

Aldermen 

1 

45,935 

14,374 

2 

2 

59,217 

24,441 

2 

10 

56,953 

9,414 

2 

11 

67,148 

11,588 

2 

16 

64,234 

10,927 

2 

19 

56,103 

9,148 

2 

20 

58,870 

7,233 

2 

22 

59,962 

10,520 

2 

Total,  8  wardfl 

468,422 

97,645 

16 

Average  per  ward.  .  . . 

58,553 

12,206 

Average  per  alderman 

29,276 

6,103 

137 


UNivERsrry  of  illinois-urbana 


3  0112  062414153 


